Thematic Evaluation of the Contribution of UN

Transcripción

Thematic Evaluation of the
C o n t r i b u t i o n o f U N - Wo m e n t o
P r e v e n t V i o l e n c e a g a i n s t Wo m e n
and Expand Access to Services
Final Report
Vo l u m e I I I – C a s e S t u d i e s
[UNFORMATTED VERSION]
AUG 2013
P r e v e n t V i o l e n c e a g a i n s t Wo m e n a n d
Expand Access to Services
Country Case Study: J a m a i c a
i
Acronyms
ACCP
Association of Caribbean Commissioners of Police
BIP
Batterer Intervention Programme
BWA
Bureau of Women’s Affairs (Jamaica)
CEDAW
Convention Eliminating All Forms of Discrimination Against Women
CISOCA
Centre for the Investigation of Sexual Offenses and child Abuse
CSO
Civil Society Organizations
CSW
Commission on the Status of Women
EVAW
Ending Violence Against Women
GBV
Gender-Based Violence
LAC
Latin America and the Caribbean
NGO
Non-Governmental Organization
NSAP
National Strategic Action Plan
PfP
Partnership for Peace
PiJ
Planning Institute of Jamaica
RPD
Regional Programme Director
SSA
Strengthening State Accountability
UN Trust Fund
Secretary-General’s Trust Fund to Ending Violence against Women
UN-Women
United Nations Entity for Gender Equality and Women’s Empowerment
UNCT
United Nations Country Team
UNDAF
United Nations Development Assistance Framework
UNFPA
United Nations Population Fund
UNICEF
United Nations Children’s Fund
UNIFEM
United Nations Fund for Women
VAW
Violence Against Women
WMW
Women’s Media Watch
i
Contents
1.
2.
Introduction 1
2.1
2.2
2.3
3.
3.1
3.2
3.3
3.4
4.
Context
2
Regional
2
National - Jamaica 2
United Nations, UN-Women and UNIFEM
3
Profile of UNIFEM-supported VAW programming in Jamaica (2008-2011)
4
Overview
4
Background: VAW programming in the subregion 4
VAW programming in Jamaica
4
Inter-agency coordination and collaboration
7
Findings
4.1
4.2
4.2.1
8
4.2.2
4.2.3
4.2.4
4.2.5
4.2.6
4.3
learned
4.4
8
Overview
8
Contributions to results and related lessons learned
General
8
Context and relevance 8
UN-Women’s operational mandate
10
UN-Women’s intergovernmental mandate
17
UN-Women’s coordination mandate 17
Sustainability of results
18
Organizational strengths and weaknesses in managing EVAW: Lessons
19
UN-Women’s strategic positioning 22
5.
Recommendations 24
6.
Implications for the overall evaluation 25
Exhibits
Exhibit 4.1 Factors likely to affect sustainability
Exhibit 6.1 Implications for the overall evaluation
18
26
iii
Appendices
Appendix I National Reference Group
29
Appendix II Case Study Methodology and Evaluation Matrix 30
Appendix III Documents Reviewed 32
Appendix IV Stakeholders Consulted 35
Appendix V Sample Interview Protocol (for NGO/CSO Partners)
Appendix VI Brief Project Descriptions
38
Appendix VII Preliminary Results Model
41
36
iv
1.
Introduction
Background
This country case study constitutes one element of the broader Thematic Evaluation of the Contribution of
the United Nations Entity for Gender Equality and Women’s Empowerment (UN-Women) to Prevent
Violence Against Women and Expand Access to Services. The objectives of the overarching evaluation
were to: i) capture key results and lessons learned from the contributions of UN-Women’s four predecessor
entities1 between 2008 and 2011 which UN-Women has taken forward to help countries prevent violence
against women and girls, and expand access to related services, and ii) analyze how well UN-Women is
strategically positioned to implement its mandate of normative, operational and coordination work in the
area of violence against women (VAW).2
This study summarizes key findings on lessons learned from the work of the United Nations Development
Fund for Women (UNIFEM), UN-Women’s predecessor entity, to end violence against women and girls in
Jamaica, and on UN-Women’s strategic positioning in this regard. This draft case study will be revised
based on feedback from the UN-Women Evaluation Office and the Jamaica national reference group (see
Appendix I).
Methodology
The country site visit to Jamaica was the first of seven country visits for the overall thematic evaluation. In
addition to collecting data on UN-Women’s and its predecessors entities work in Jamaica, the visit was a
‘pilot’ to test data collection tools and provide insights and implications for the overall evaluation. Based
on experiences of the Jamaica visit and following feedback from the UN-Women Evaluation Office, the
evaluation team developed a case study methodology, outlining the purpose and approach to the case
studies, and a tailored version of the evaluation matrix.
Data collection for the country case studies was structured according to the three strategic evaluation
questions outlined in the case study evaluation matrix in Appendix II. Key sources of data to inform the
country case study were documents (listed in Appendix III), in-person interviews during the country visit to
Barbados and Jamaica (15-19 October 2012) and telephone interviews. The 32 stakeholders consulted are
listed in Appendix IV. Appendix V provides a sample interview protocol. Protocols for other stakeholder
groups were similar, but tailored to the respective group. Appendix VI summarises information on specific
VAW-related projects reviewed for the case study, and Appendix VII includes the reconstructed (draft)
results logic for VAW programming used to structure evaluation findings in Section 4.
Report structure
This country case study is structured in five sections. Section 2 summarizes the background contexts for
UN-Women and UNIFEM’s work on violence against women and girls between 2008 and 2011. Section 3
presents a profile of UN-Women and UNIFEM managed or supported programming during the same
period. Section 4 provides the evaluation’s findings on the three strategic evaluation questions while
suggestions and recommendations for UN-Women that emerged from the Jamaica case study are presented
in Section 5. Section 6 briefly summarizes selected observations derived from this case study that are of
particular relevance in view of informing the overall evaluation.
1
UN-Women’s predecessor entities are: the Division of the Advancement of Women (DAW), the United Nations International
Research and Training Institute for the Advancement of Women (INSTRAW), the United Nations Development Fund for Women
(UNIFEM), and the Office of the Special Advisor on Gender Issues and the Advancement of Women (OSAGI).
2
Information on evaluation objectives and methodology are available in the final evaluation Inception Report (November 2012).
1
2.
2.1
Context
Regional
While all Caribbean countries, with the exception of Haiti, are classified as middle-income countries, they
have all experienced negative fallout due to new trading regimes, rising fuel costs and the global financial
crisis. The region is vulnerable to natural disasters, the frequency and severity of which have been affected
by climate change. Poverty rates in the subregion range from 14 per cent in Barbados to 39 per cent in
Dominica. Poverty tends to be most concentrated in women-headed households and affects children,
women, the elderly and those living in rural areas the most. Given the declining fiscal capacity of states,
financial contributions to the poorest households is a policy concern in the Caribbean region.
Due to its geographic location, the Caribbean is a popular site for the shipment of narcotics and weapons
which, coupled with high-levels of youth unemployment, has led to an increase in violent crime and
community insecurity during the past decade.
Gender discrimination persists across the region and is coupled with high-levels of violence against women
and girls.3 All countries in the Caribbean for which data are available indicate that the region reflects one of
the highest incidences of gender-based violence (GBV) in the world.4
A 2010 study by the Inter-American Development Bank (IADB) shows that average male earnings surpass
those of females by between 14 and 27 per cent in Barbados, and between 8 and 17 per cent in Jamaica.5
Even in the informal economy, women earn less than men and have smaller enterprises with fewer
employees.6 Women’s representation in parliamentary and political decision making bodies varies by
country but tends to be weak.7 Restrictions to sexual and reproductive rights exist in several countries,
some countries face high maternal mortality rates, and the Caribbean overall has one of the highest rates of
HIV in women.8
2.2
National - Jamaica
The recent global recession hit Jamaica hard and brought the country to the brink of insolvency. A recent
new loan agreement with the International Monetary Fund (IMF) comes with a number of conditions that
include severe cuts to the civil service and a three-year wage freeze for public sector workers. Such
conditions may limit the government’s ability to deliver services and effectively implement its
programmes. Jamaica’s status as a middle-income country is making it increasingly difficult for national
and international organizations to attract donor funding for development interventions.
Crime and murder rates in Jamaica are among the highest in the world. Violent crime tends to be
concentrated in inner-city communities, with the main perpetrators and victims being young men between
3
United Nations Office on Drugs and Crime and the Latin America and the Caribbean Region of the World Bank. Crime, Violence,
and Development: Trends, Costs, and Policy Options in the Caribbean. March 2007.
4
Jamaica Draft National Strategic Action Plan to end GBV (2011).
5
Available from http://idbdocs.iadb.org/wsdocs/getdocument.aspx?docnum=35326952 .
6
Sandra Sookram. The Informal sector and gender in the Caribbean: the case of Trinidad and Tobago. Available from
http://sta.uwi.edu/salises/pubs/workingpapers/18.pdf
7
In 2011, 12 of 14 Caribbean countries had fewer than 15 per cent women elected in Parliament, while Suriname had 30 per cent
and Trinidad and Tobago had 28.6 per cent. There are currently no women elected to Parliament in Belize.
8
According to the United Nations Programme on HIV and AIDS (UNAIDS), aside from sub-Saharan Africa, the Caribbean is the
only region where the proportion of women and girls living with HIV (53 per cent) is higher than that of men and boys. Available
from http://www.unaids.org/documents/20101123_FS_carib_em_en.pdf.
2
16 and 30 years of age. Some of the suspected root causes of various forms of violence are increasing
levels of poverty, unemployment, and increased access to illegal drugs and small arms.
2.3
United Nations in the Caribbean
Most United Nations entities in the Caribbean do not have offices in each country. Existing offices/teams
tend to be small (e.g. the United Nations Population Fund [UNFPA] regional office has three staff
members) and work with limited funds. As a result, a considerable amount of United Nations programming
tends to be limited to short-term interventions and/or one-off events.
The Secretary General’s UNiTE to End Violence against Women campaign was officially launched in the
Caribbean in 2010. Since then, all United Nations country teams (UNCTs) in the region have come
together for at least one joint event per year. The 2012 event led by the United Nations Children’s Fund
(UNICEF) focused on violence against girls, while the 2011 event led by UNFPA focused on justice issues.
The Jamaica UNCT includes eight resident and two nonresident entities (including UN-Women). To date,
United Nations entities in Jamaica have engaged in only
a few joint programmes, none of which were related to
VAW or gender equality. In 2011, several entities
submitted a joint proposal on behalf of the Jamaica
UNCT to the Secretary-General’s Trust Fund to End
Violence against Women (UN Trust Fund), but the
proposal was not successful.
In 2012, UNFPA developed a sexual
violence strategy which the Jamaica
regional office shared with national and
international stakeholders.
UNFPA was recently approached by the
Prime Minister of Jamaica to address issues
of sexual and GBV during a series of
community meetings organized by the Prime
Minister’s Office marking the 50th
anniversary of Jamaica’s independence.
Most consulted stakeholders described UNFPA as the
one United Nations entity, besides UN-Women, that has
been most visible and active in addressing VAW in Jamaica, in particular in relation to sexual violence.
UN-Women and UNIFEM in the Caribbean
Throughout the period under review, UN-Women and UNIFEM’s work in the Caribbean has been led from
its subregional office in Barbados, which covers programming in 26 countries. Under the ongoing process
of restructuring UN-Women’s regional architecture, the Barbados office will become a ‘multi-country
office,’ as the new structure does not include subregional offices. It is still unclear whether this will change
the responsibilities of the Barbados office (e.g. whether it will be asked to focus on a smaller number of
countries).9
Between 2008 and 2011, and at present, the subregional office has consisted of one or two administrative
staff, and approximately four to five programme staff including a Programme Officer for VAW and, more
recently, a Gender Equality Coordination Specialist responsible for operationalizing UN-Women’s interagency coordination role. Most staff members have short-term service contracts. Staffing has not increased
since the creation of UN-Women, and there appear to be no concrete plans for any such changes. Similarly,
available budgets for VAW-related programming or other thematic areas have not significantly changed
since the creation of UN-Women.
The long-serving Caribbean Regional Programme Director (RPD), who served from 2004 to 2012, recently
left and since mid-October 2012, an interim Officer-in-Charge has been managing the office. A new Head
of Office was expected to be appointed in early 2013.
9
Consulted staff members in the Barbados office mentioned ongoing discussions over a proposal to have the office focus on four to
five countries only.
3
P r o f i l e o f U N I F E M - s u p p o r t e d VAW
p r ogr a m mi ng i n J am a i ca ( 2 0 0 8- 2 0 11 )
3.
3.1
Overview
This section provides an overview of the work on violence against women and girls that was led or assisted
by UN-Women and UNIFEM in the Latin and the Caribbean (LAC) region between 2008 and 2011. This
includes initiatives funded and managed by UN-Women and UNIFEM, as well as projects funded by the
UN Trust Fund which were administratively supported by UN-Women and UNIFEM.
3.2
Background: VAW programming in the subregion
Violence against women and girls-related programming was guided by UNIFEM’s regional strategic plan
for the LAC region (2008-2011). The plan highlighted two areas related to violence against women and
girls, namely:

Policy and legislation: Raising awareness and building capacity for the formulation of national
legislation addressing VAW in compliance with international agreements; and building capacity of
key actors for the implementation of VAW-related legislation, including of judges and other civil
servants, indigenous leaders and teachers, and civil society organizations (CSOs).

Communication: Leading the annual campaign of 16 Days of Activism against VAW, involving
the United Nations system and other stakeholders; undertaking preventive activities involving men,
boys, adolescents and indigenous peoples including working with communicational campaigns to
prevent VAW targeting young urban males; and leading the Task Force of United Nations partners
in LAC in their efforts to develop a regional strategy to support the Secretary-General’s UNiTE
campaign.
VAW programming in Jamaica was also guided by UNIFEM’s Caribbean subregional strategy (20082009). The strategy reflected regional priorities and identified the following foci of its VAW-related work:
i) building capacities for ending widespread impunity for sexual assault and domestic violence with a focus
on technical, forensic skills building for the justice and security sectors and monitoring of the state by
human rights institutions (e.g. Ombudsman), and women’s rights networks and communities; and ii)
piloting of the Safe Cities initiative in Jamaica and Haiti. The latter was not realized in Jamaica, largely due
to lack of buy-in from national partners and lack of funding. Within the Caribbean subregion, Haiti was the
only country identified in the regional strategy as a priority country for UNIFEM’s work. However,
Jamaica was treated as a priority country in view of VAW-related interventions.
3.3
VAW programming in Jamaica
UNIFEM supported VAW programming in Jamaica through direct project support, core funding and the
UN Trust Fund.
UN-Women and UNIFEM VAW-related investments, 2008-2011
UNIFEM project support - approximately $217,000
UNIFEM core funding – no financial data available
UN Trust Fund – $712,408
4
UNIFEM project support
Based on data available from the document review and consultations with the UN-Women office in
Barbados, UNIFEM’s investment in EVAW programming in Jamaica in 2008-2011 was approximately
$217,000.11 Most of this was channelled through the comprehensive Strengthening State Accountability
(SSA) and Community Action for Ending Gender-Based Violence project (January 2009-November
2011) with a budget of $191,000.
While constituting its own country specific project, the SSA in Jamaica was part of a broader regional
initiative through which UNIFEM
supported similar objectives in six
Objectives of the SSA project10
12
other countries in collaboration
1. Develop multisectoral strategic plans to address the protection,
with the Association of Caribbean
prevention, and punishment of sexual and GBV.
Commissioners of Police (ACCP). It
2. Build competencies of the justice and security sectors and nonwas implemented by the Jamaican
governmental sectors to respond effectively to GBV.
Bureau of Women's Affairs (BWA).
3. Build a monitoring framework to ensure accountability through
The SSA was aligned with, but also
civil society- state partnerships.
elaborated on and further specified
the overall objectives outlined in the
4. Promote a gender-sensitive, youth-focused social
communications strategy on GBV.
Caribbean subregional strategy. It
aimed to systematically strengthen
national capacity in VAW prevention, protection and response;13 and facilitate regional exchanges and
networking of state actors in the justice and security sectors.
In 2008, UNIFEM also invested $26,000 in a series of workshops introducing the regional Partnership for
Peace programme, a batterer intervention programme (BIP), in Jamaica.14
UNIFEM core funding support
UN-Women and UNIFEM also supported VAW-related work in Jamaica (and the subregion) through a
number of ongoing efforts to support the overarching priorities outlined in the SSA. These efforts were
largely financed through core funds and are, as such, not included in the VAW-related project investments
noted above. UN-Women did not have data on the size of VAW-related investments supported through
core funding.
Key efforts conducted with core funding support included:
Capacity development

Providing financial support to CSO members to attend regional or global meetings (e.g. related to
the Convention on the Elimination of All Forms of Discrimination against women [CEDAW] or
the Commission on the Status of Women [CSW]).

Providing financial support for institutional strengthening and capacity development of women’s
non-governmental organizations (NGOs) working on VAW-related issues, and/or with stakeholder
groups for whom VAW is a key issue (e.g. the Jamaica Network of Women Rural Producers, the
Jamaica Household Workers Association).
10
As per Project Document.
11
Unless otherwise indicated, currencies indicated are in United States dollars.
12
Antigua and Barbuda, Belize, Guyana, Saint Kitts and Nevis, Saint Lucia, and Saint Vincent and the Grenadines.
13
Including both punishment of perpetrators and providing services for VAW survivors, in particular access to justice.
14
Additional BIP workshops were conducted in 2011 as part of the SSA project.
5

Facilitating regional exchanges and networking of state actors (e.g. representatives of police forces,
judges and other justice sector personnel) and civil society representatives – specifically on VAW
and other issues closely interlinked with VAW (e.g. the rights of domestic workers and rural
women).

Following and providing guidance to grantees of the UN Trust Fund.

Providing financial and technical support to other projects of government and CSO partners which,
while not specifically focusing on VAW, touched upon and included VAW-related components
(e.g. work on HIV and AIDS, and women’s political and economic empowerment).
Knowledge management/sharing

Sharing relevant information and resources (tools, reports, studies, etc.) on VAW-related issues,
including information on funding opportunities through other entities. Information sharing took
place both through the corporate and subregional UN-Women and UNIFEM websites, and active
outreach (e.g. UN-Women staff sending out information on relevant resources or events).
Inter-agency coordination

The UN-Women Barbados office also took a lead role in organizing and reporting on annual events
around the UNiTE campaign in the region, including in Jamaica.
UN-Women staff emphasized that a lot of programming in the Caribbean had a regional character, i.e. it
aimed to facilitate the creation and use of the synergies and momentum created by regional exchanges and
collaboration.
UN Trust Fund
Between 2008 and 2011, a total of $712,408 was disbursed through three projects funded through the UN
Trust Fund, namely:
1) Tek It To Dem And Rise Up Wi Community project (2009-2012). The project had a budget of
$537,598 and was implemented by the CSO, Sistren Theatre Collective. The project worked in two
inner-city communities in Kingston with high rates of violence including, but not limited to, VAW.
Using a wide range of participatory and creative methods (including street theatre and ‘street
corner reasoning sessions’) the project aimed to address VAW in the contexts of domestic
violence; sexual violence; the harmful practice of early sexual initiation and myths around sex; and
in conflict situations.
2) Reducing GBV in Jamaica: Increasing awareness - strengthening responses (2008-2010). The
project was implemented by the BWA with a budget of $70,874.15
3) Enhancing Public Access to Protection under the Laws on Domestic and Sexual Violence
(2008-2010). The project was implemented by Women’s Media Watch (WMW) with a budget of
$103,936.
The latter two projects derived from a joint proposal of the two implementing agencies to the UN Trust
Fund and were, in practice, largely treated as one single initiative referred to as Increasing AwarenessStrengthening Response. Both project components aimed to contribute to reducing GBV in Jamaica by
increasing awareness, enhancing access to protection and strengthening responses. The BWA focused on
working with public sector institutions, while WMW targeted a broader range of stakeholders, including
community leaders, civil society representatives, media practitioners and young adults. Key strategies
employed by both implementing partners included training workshops, the production of information
materials (e.g. brochures) and outreach through mainstream media.
15
Available from http://untf-evaw.org/beta/?grantees=175.
6
3.4
UN-Women and UNIFEM led and coordinated the 2010 launch of the UNiTE campaign in the Caribbean,
and has subsequently taken a lead role in the planning and implementation of annual joint United Nations
events and country specific media campaigns. Besides UN-Women and UNIFEM, UNFPA and UNICEF
have actively engaged in issues related to violence against women and girls. UNFPA efforts have focused
on issues of sexual violence and VAW in the context of reproductive health and rights, while UNICEF’s
work has addressed violence against girls in the context of its child protection mandate and gender
mainstreaming commitment. Consulted stakeholders noted that UNFPA and UN-Women were the two
United Nations entities most commonly known to work on VAW.
During the period under review, UN-Women and UNIFEM regularly participated in UNCT meetings in
Jamaica (in person or via online telecommunications), and in events such as the annual Jamaica UNCT
retreat. Furthermore, UN-Women provided input to the Jamaica United Nations Development Assistance
Framework (UNDAF). Consulted stakeholders acknowledged that UN-Women staff (especially the then
RPD and the recently appointed Coordination Officer) managed to be active participants despite not being
able to attend all meetings in person. UN-Women and UNIFEM also led efforts to elicit input from other
United Nations entities on the latest CEDAW report for Jamaica and distributing the committee’s
concluding comments.16
More recently, under the leadership of the Resident Coordinator and in collaboration with UN-Women, the
Jamaica UNCT has begun the process to establish a Gender Theme Group which UN-Women would chair.
The Group and has held preliminary discussions on approaches to collaboration on VAW in Jamaica and
will build upon the existing collaborative relationship between UNFPA, UNICEF and UN-Women.
16
Jamaica’s combined 6th and 7th periodic CEDAW report was presented and discussed at the 52nd CEDAW Session in July 2012.
7
Findings
4.
4.1
Overview
This section presents the findings on the three strategic evaluation questions as outlined in the case study
evaluation matrix:
1) For the period 2008-2011, what has been the contribution to results towards ending VAW in
Jamaica made by UN-Women’s predecessor entities? What are related lessons learned? (Section
4.2).
2) What have been and are organizational strengths and weaknesses of UN-Women and lessons
learned from its predecessor entities in view of planning, implementing, monitoring and
evaluating their EVAW related work? (Section 4.3).
3) To what extent has UN-Women strategically positioned itself to add value in preventing and
responding to VAW in global, regional and national contexts? (Section 4.4).
The lessons/best practices noted in the sidebars of this chapter reflect: the views of consulted stakeholders;
observations and findings in available evaluations of the Jamaica component of the UNIFEM-supported
SSA project and the UN Trust Fund-supported project Reducing GBV in Jamaica: Increasing awareness strengthening responses; and observations made by the evaluation team based on available data.
4.2
4.2.1 General
This section presents evaluation findings on UN-Women’s contributions to results and related lessons
learned in Jamaica. Section 4.2.2 presents findings on context and relevance, which cut across the different
dimensions of UN-Women’s mandate. Sections 4.2.3 and 4.2.4 present findings on contribution towards
results. Section 4.2.5 outlines a number of factors likely to affect the sustainability of results achieved to
date.
4.2.2 Context and relevance
Gender equality and VAW in Jamaica
As noted in the 2011 (draft) National Strategic Action Plan to End GBV, VAW in Jamaica is a dimension
of the larger problem of crime and
violence. A 2007 joint study on
violence by the United Nations
Office on Drugs and Crime
(UNODC) and the World Bank, cited
In Jamaica, the issue of VAW needs to be understood in the context
Jamaica as one of three Caribbean
of many other forms of violence that affect men and women, boys
countries with the highest reported
and girls on daily basis. Violence is so common that it is widely
perceived as being ‘normal’ and, as such, socially acceptable.
rates of sexual violence globally.17
Some sources indicate that
approximately 50 per cent of women in Jamaica have been forced into their first sexual experience.18
Homosexual acts are illegal in Jamaica and there are high levels of homophobia in all parts of society. This
17
UNODC and World Bank. Crime, Violence and Development. 2007.
18
Government of Jamaica. National Strategic Action Plan on GBV. 2011.
8
is relevant to efforts around working
with men, and (re)defining concepts
of ‘masculinity’ in the context of
VAW.
In preparing for the UN Trust Fund-funded project Tek It To Dem
While issues around VAW have
And Rise Up Wi Community project the implementing NGO
been given increasing attention, there
conducted an in-depth baseline study in the targeted communities,
is limited reliable and comprehensive
involving over 900 community members through a survey, focus
20
data on VAW in Jamaica. Several
group discussions, interviews and an audio-visual documentary.19
consulted stakeholders shared their
The study explored the deep-rooted sense of violence, contributed
impression that the rate of violence
to better understanding the context of VAW, and brought insights
into women’s role in perpetuating violence as a socially accepted
overall, including VAW, had
norm, especially through their relationships with and behaviour
increased over the past few years.
towards their male children. The study allowed tailoring project
While noting that this perceived
interventions to their contexts, by involving the communities in
increase may be due in part to an
shaping the issues to be addressed.
increase in the reporting of VAW
cases, several stakeholders felt that the degree of brutality and cruelty related to such cases had increased as
there are more incidents of murder and torture of women and girls than in the past.
Both previous and current Jamaican governments have expressed their commitment to gender equality and
eradicating VAW. Jamaica is party to conventions such as CEDAW, Belém do Pará, and the Beijing
Declaration and Platform for Action, as well as other various international human rights related
conventions. However, Jamaica has
not yet signed the CEDAW Optional
Relevant National laws/policies
Protocol.
• Domestic Violence Act 1995 (amended in 2004)
The national legal and policy
• Sexual Offences Act (2009)
framework for addressing VAW is
widely considered to be relatively
• Child Pornography (Prevention) Act (2009)
strong. At the same time, most
• Offences against the Person Act
stakeholders consulted for this
• The Trafficking in Persons Act (2007)
evaluation found (as is also
highlighted in the Draft National
• (Draft) National Strategic Action Plan to end GBV (2011)
Strategic Action Plan to end GBV)
• National Policy for Gender Equality (2011)
that the operationalization and
implementation of policies and
legislation continues to be unsatisfactory. It was also noted that a long awaited law on sexual harassment
had not yet materialized.
Jamaica’s institutional framework for addressing VAW includes the BWA, the Centre for the
Investigation of Sexual Offenses and Child Abuse (CISOCA) in the Jamaica Constabulary Force, and a
Victim Support Unit in the Ministry of Justice. Furthermore, Jamaica has a network of CSOs involved in
advocacy and/or various forms of support for victims of GBV. Many of these organizations are well
established and strong, but many of them face constraints in terms of securing funding for their work.
19
Available from http://www.sistrentheatrecollectiveja.org/Baseline%20Study%20Tek%20it%20To%20Dem%20Project[1].pdf .
20
To address this issue, the BWA with support from a Cuso volunteer, is currently working on developing gender indicators and
collect sex disaggregated data within the sectoral ministries as part of the Government’s mainstreaming initiative under the national
policy for gender equality. Cuso International places people of all ages who collaborate with local groups on projects in Latin
America, the Caribbean, Africa and Asia. Volunteers share expertise and perspectives, and unlock potential
(http://cusointernational.org/about-cuso )
9
The BWA has worked directly under the Prime Minister’s Office since January 2012. According to
consulted stakeholders, this provides the BWA with a strategic position that can strengthen its ability to
reach out to and coordinate the gender-related work of other government entities. At the same time, the
Prime Minister’s broad portfolio limits the BWA’s access to the decision making powers of a responsible
line minister. To mitigate this challenge the Prime Minister has recently requested that an additional
Minister in her Office assist at times to address issues related to women and gender affairs.
Services for the survivors of VAW in Jamaica exist, but are limited. For example, there is only one shelter
located in Kingston, which has been managed by a national NGO for the past 25 years. The NGO receives
a small government stipend to contribute to the running of the facility but continuously struggles to raise
sufficient funds. Women in other parts of the island do not have access to similar facilities or to other
services such as counselling.
4.2.3 UN-Women’s operational mandate
The following findings focus on the operational dimension of UN-Women’s mandate and are grouped
around key types of results. Where applicable, these are linked to the key results outlined in the a)
reconstructed corporate results logic as noted in the final evaluation Inception Report and b) the 2008-2011
LAC regional strategic plan and/or the 2008-2009 subregional strategy for the Caribbean.
Short- and mid-term results
Developing national and sector
specific policies and legislation
addressing VAW in Jamaica.
The draft national strategic action plan
(NSAP) to end GBV, developed in
2011 as part of the SSA and
Community Action Project, is widely
seen as a highly relevant achievement
during the period under review. It
outlines gaps in Jamaica’s legal and
institutional framework for addressing
VAW and a set of key areas to be
addressed. It also calls for a
coordinated, multisectoral approach to
VAW prevention, protection and
response.
UN-Women and UNIFEM’s
contributions to this achievement
included providing funding for the
SSA and Community Action project,
as well as technical assistance and
ongoing support and advice to the
implementing agency, BWA.
Results area relates to:
“Legislation and policies are developed, adopted and implemented
to respond to and prevent violence against women and girls.”
(Reconstructed corporate results logic)
“Policy and legislation: Raising awareness and building capacity for
the formulation of national legislation addressing VAW in
compliance with international agreements.”
(2008-2011 LAC regional strategic plan)
The draft NSAP builds on extensive research and preparatory
work.21 In doing so it has provided an example of evidence-based
policy making, and has contributed to enhancing available national
data on VAW.
The NSAP enhances the likelihood of Jamaica being able to take a
coordinated, systematic approach to ending VAW. However, its
implementation requires operationalization and priority setting.
Similar NSAPs have been or are being developed and are being
implemented in other countries in the region. This can assist
Jamaican national partners in securing political will and support
across state and other actors to implement the plan.
BWA has recently held consultations
with national and international
partners to jointly determine a set of priorities for implementing the plan. The tentatively proposed four
21
Including a baseline assessment of policing and prosecution of sexual offences in Jamaica, and a national assessment of actions
on ending VAW in Jamaica.
10
priorities are: 1) public education, 2) shelters, 3) sustainable livelihoods, and 4) partnerships. Not all
consulted stakeholders agreed that these areas are the most urgent or feasible to address – e.g. one noted
concern was that enhancing livelihoods was so broad an issue that it might divert from making progress in
other areas more specifically related to VAW. Others, however, believed VAW can only be addressed by
tackling the underlying cause of poverty and/or women’s economic dependency.
Public consultations on sexual harassment in the workplace, carried out as part of the UN Trust Fund
project to reduce GBV in Jamaica, fed into a draft policy on sexual harassment prepared by the BWA.22
However, the CEDAW NGO Alternative Report (2012) indicated that Jamaican women’s NGOs have not
yet seen or had a chance to comment on this policy, and that a related law (as opposed to a policy) is long
overdue.
UN-Women and UNIFEM’s work on HIV and AIDS has also contributed to ensuring that VAW is
included in Jamaica’s HIV and AIDS national strategic plan (2007-2012).23 UN-Women (with funding
from the United Nations Gender Equality Fund) also supported BWA develop the Jamaican Gender
Equality Policy (2011) which emphasizes VAW as one of the main impediments to gender equality in
Jamaica, and calls for a coordinated, multisectoral approach in its implementation. Available documents
and stakeholder consultations did not indicate whether the Gender Equality Policy or the HIV and AIDS
strategic plan have (yet) led to any VAW-specific results.
Relevant in this context is the work conducted by WMW and BWA on the Reducing GBV in Jamaica
project, which aimed to raise awareness on sexual harassment, and influence the development of sector
specific sexual harassment policies in all Jamaican ministries, and institutional sexual harassment policies
in selected private sector companies. The end of project evaluation (June 2010) noted that almost all
participants of training events conducted under the project confirmed the high relevance of the thematic
issue and their satisfaction with the specific events they attended. At the same time, the evaluation did not
find evidence of project efforts
having led to observable changes
in sector and/or institutional
policies, and only limited
evidence of changes in individual
One-off trainings and awareness-raising events can contribute to
or collective behaviours, and
building a more conducive environment for change, but do not
follow-up actions at institutional
sufficiently ensure the development and implementation of
and/or individual levels resulting
institutional and/or sector specific VAW-related policies or actions.
from these interventions.24 CSOs
and community members targeted under the same project had made comparatively more efforts to share the
information they had received with others, but the evaluation report notes only a few anecdotal examples of
specific effects or follow-up actions the project was likely to have contributed to. The evaluation report
cites several project beneficiaries stating that, while their personal awareness of sexual harassment had
increased, they felt they needed additional support in order to make specific changes or influence such
change in their workplace or community.
22
The full title of the project was Reducing GBV in Jamaica: Increasing awareness, enhancing access to protection, strengthening
responses.
23 The national strategic plan notes that women, in particular, fear violence from their partners if they disclose their HIVpositive status. It also acknowledges negotiations to use condoms are often difficult for women as men tend to be the sexual
decision makers.
24
In June 2010, at the time of the evaluation report, none of the targeted public sector institutions had replicated the sexual
harassment awareness trainings internally, nor had they developed sexual harassment policies.
11
Strengthening the capacity of gender advocates in Jamaica to effectively influence policies and
actions to address VAW
Several consulted CSO representatives noted that UN-Women and UNIFEM had provided ongoing support
for strengthening their
organizational capacities25 and
provided opportunities for
“Women and gender advocates influence policies, actions and
networking with relevant partners
budgets to address VAW.” (Reconstructed corporate results logic)
not only during the period under
review, but also beforehand. This
“Policy and legislation: building capacity of key actors for the
support had helped their
implementation of VAW-related legislation, including of judges and
other civil servants, indigenous leaders and teachers, and CSOs.”
organizations play a stronger role in
(2008-2011 LAC regional strategic plan)
conducting advocacy at both
national and regional levels. One
stakeholder noted, for example, that
as a result of the technical support
received from UNIFEM, her
Participation in regional networks not only allows gender advocates
organization had better understood
to share experiences with and learn from other actors in the region,
the need to work in close
but also to influence the development of regional movements that
collaboration with BWA, and had
can influence policies, actions and budgets to address VAW.
subsequently established a
Positive changes in the capacity of women and gender advocates
productive partnership with them.
take time to translate into visible influences on policies, actions or
budgets.
Several other stakeholders noted
that UNIFEM had enabled their
organizations to participate in regional networks (e.g. related to the rights of domestic workers; the rights
and needs of rural women in the Caribbean) both by providing financial assistance, and by creating spaces
for such networking to take place in. Contacts established through these events had not only allowed
stakeholder organizations to share experiences with and learn from other actors in the region, but also to
influence the development of regional movements, such as the creation of a trade union for domestic
workers which is expected to be officially formed in early 2013. Such achievements may, in the mid- to
long-term, positively influence the ability of women’s organizations to influence policies and actions
(including budget allocations) on VAW-related issues.
Women’s organizations were involved in the extensive consultations around the draft NSAP for GBV led
by BWA with support from UN-Women and UNIFEM, and in recent consultations to determine priorities
for its implementation. Some consulted CSO stakeholders however felt that meaningful consultations and
involvement of civil society by BWA had fallen in the recent past. The evaluation found no specific
examples of women and/or gender advocates influencing specific sector or institutional budget allocations
in relation to addressing VAW issues.26
25
Including strengthening staff capacities, e.g. through access to relevant information/knowledge and tools or networking, and
organizational infrastructure, e.g. by allowing an organization to purchase essential equipment such as a computer or printer.
26
In this context several stakeholders mentioned that in their view the notion of gender responsive budgeting had ‘never caught on
in the Caribbean.’
12
Strengthening the capacity of national authorities in Jamaica to enhance the quality of services to
VAW survivors
UNIFEM supported initiatives from
2008-2011, in particular the SSA
project, made efforts to strengthen the
capacity of national actors to provide
quality services for VAW survivors,
in particular ensuring their access to
justice. There is evidence of numerous
relevant and successful activities
having been carried out in this regard
(both at national and regional levels).
For example:
“National and local-level authorities enhance number and/or quality
of critical services to VAW survivors.” (Reconstructed corporate
results logic)
other civil servants [...]” (2008-2011 LAC regional strategic plan)

The SSA project included
Positive feedback from participants on trainings for service providers
various training opportunities
did not allow conclusions to be drawn on the (likely) long-term
for senior police personnel
results of these interventions. In order to assess the effectiveness of
(including through short-term
interventions, in terms of enhancing the number and/or quality of
internships in Canada and
services, long-term tracking of participants’ attitudes and behaviours
Rwanda), to equip them with
would be required.
appropriate skills to work with
National leadership is essential for ensuring the institutionalization of
survivors of VAW. Trained
EVAW-related efforts. Actors such as UN-Women and UNIFEM can
officers included two officers
facilitate and support related processes, but cannot create national
leadership.
from CISOCA, one of whom
was the Centre’s Commanding
Officer. Since returning from the training, these individuals have prepared a training curriculum for
CISOCA staff and other police officers. CISOCA and the police academy with support from BWA
are expected to roll out this programme island-wide. The process had not yet started at the time of
writing and had therefore not (yet) contributed to any noticeable changes in the quality of services
provided by police personnel in Jamaica. Also, the former CISOCA Commanding Officer has since
been transferred to another entity. While she has indicated her willingness to conduct trainings, this
change poses a challenge for the roll out of the training plans. Consulted UN-Women staff
indicated that in other Caribbean countries also implementing the SSA project the roll out of
follow-up trainings had worked very well, implying that challenges experienced in Jamaica are
more likely to be contextual rather than due to characteristics of the training approach or envisaged
approach to replication.

In terms of reaching justice sector personnel, a representative of the Office of the Public
Prosecutions participated in a regional training. The SSA also produced Complaints and Response
Protocol on Gender-Based Violence for the Office of the Public Defender in Jamaica, outlining
some guiding principles for collaboration between the Office of the Public Defender and BWA.
While the (draft) SSA project evaluation notes that the project had contributed to strengthening the
relationship between BWA and the Office of the Public Defender, information is not yet available
as to whether this protocol has already been put to use or not and, if yes, with what results.

Also under the SSA project, UN-Women provided funding for training of 16 facilitators to support
the violence prevention Partnership for Peace Programme (PfP) under the Department of
Correctional Services in October 2011. In 2008, UNIFEM, through a Jamaican NGO implementing
agency, had already made efforts to launch PfP in Jamaica by conducting three trainings for
facilitators and magistrates. At the time, neither the Department of Correctional Services nor other
national actors had been willing or able to take on leadership for institutionalizing the programme
and ensure follow-up and roll out in Jamaica.
13
The SSA project only concluded in December 2011, as such it is too early to expect far-reaching results in
terms of notable changes in the types or quality of available services provided through police or justice
sector personnel. The approaches chosen under the project were strategic in that they deliberately focused
on senior officers in decision making positions in each sector, and aimed to create regional networks (and
related ‘peer pressure’). Similarly, they reflect considerations regarding the sustainability and
institutionalization of results, e.g. by trying to integrate VAW-related content into the ongoing work of the
police training institute. However, data collected during the evaluation site visit to Jamaica and information
conveyed in the draft SSA project evaluation report raise some concerns over whether (and which) national
actors can and will provide the leadership, follow-up action, and resources required to ‘translate’ the
achievements made at the level of individuals to date into changes at the institutional and sector levels. The
experiences of launching the PfP for the first time in 2008 give reason for some concern as related efforts
largely remained stand-alone workshops.
Raising awareness on VAW among decision makers and community members in Jamaica
All reviewed VAW-related projects
and ongoing efforts supported by UNWomen and UNIFEM and the UN
“Awareness of and public support for EVAW from decision makers,
Trust Fund included components of
leaders, and community members.” (Reconstructed corporate
results logic)
(public) education, awareness raising,
and/or securing public support for
“Communication: undertaking preventive activities that involve men,
EVAW. From a long-term
boys, adolescents [...] working with communicational campaigns to
perspective, these efforts were geared
prevent VAW targeting young urban males.” (2008-2011 LAC
regional strategic plan)
towards influencing existing
institutional and social norms and
behaviours and, in doing so, contributing to VAW prevention.
Although it is difficult to measure
related results, consulted stakeholders
expressed the view that related
activities had been relevant and
successful, in particular in raising
awareness of VAW-related issues
among the targeted individuals. This
view is also supported by the findings
of the draft SSA evaluation report and
the evaluation of the Reducing GBV
in Jamaica project. Similarly,
consulted stakeholders widely agreed
that events related to the UNiTE
campaign had contributed to raising
the visibility and public support for
EVAW efforts to in Jamaica and the
region.
Public education and sensitization are important means of
influencing individual and collective attitudes. However, knowledge
and awareness do not automatically translate into changed
behaviours.
Effective information sharing can take place in ‘unexpected’ places,
e.g. one Jamaican NGO successfully worked with
hairdressers/cosmetologists to distribute VAW-related information,
as these were able to relate to and reach out to women in an
atmosphere of trust and relaxation.
In order to influence social and institutional norms, it is necessary to
work with a wide range of actors who have the potential to influence
others. This can include (moral/cultural) authorities such as
representatives from faith based organizations, as well as
individuals respected or revered for other reasons, such as wellknown artists.
To date, there is only anecdotal
information available on specific
effects of the work to raise awareness and secure public support. Some consulted stakeholders said that the
behaviour of women changed once they learned about their rights and/or about places they can turn to, e.g.
by seeking assistance or reporting cases of abuse. At the same time, as noted above, several beneficiaries of
training and sensitization events27 confirmed that their own understanding and awareness of VAW (or
27
As reflected in the two available project evaluation reports.
14
specific sub-issues such as sexual harassment) had been increased, but expressed uncertainty as to what to
do with this knowledge. Also, in several cases, outreach efforts were limited to one-off events such as a
workshop or meeting, with little or no opportunity for follow-up and/or sustained support to the respective
beneficiaries. This made it difficult for the respective implementing organization to assess the mid- to longterm effects of efforts such as training community-based young women and men in advocacy; or training
men on issues such as positive masculinity, as under the SSA project.
Nevertheless, national stakeholders consulted during the evaluation country visit shared several anecdotal
examples to illustrate their experiences of how enhanced knowledge made a real difference in the lives of
women, in particular information about their rights and available services for survivors of VAW.
Stakeholders also emphasized how influencing changes in the behaviour or individuals or groups is a longterm process, in which progress can consist of seemingly ‘tiny steps.’
Some of the progress reports for the UN Trust Fund’s Tek it To Dem and Rise Up Wi Community project
provide examples of concrete changes resulting from the work of Sistren Theatre, the implementing NGO.
For example, teachers and guidance counsellors in the targeted schools noted how boys and girls who had
attended ‘reasoning sessions’ facilitated by the project showed clear changes in their behaviour, including
enhanced male/female interactions and less aggression in male to male interactions. Several students also
showed better academic performance
following the interventions.28 Also,
“Sometimes little things were big successes. For example, a young
some of the targeted men have since
man told us how he just walked away from an argument with his
created Fathers for Youth
wife before hitting her, which he said he would not have done
Empowerment, a father’s group
before. In another case, some of the men who attended a workshop
which aims to monitor the safety of
on the ‘morning after’ (an incident of domestic violence) started to
their children and developing after
show first signs of admitting that they felt bad and that they were
wrong to hurt their partner. Guys were showing feelings in a culture
school programmes. Furthermore,
where men do not normally do that. Those were huge successes.”
following counselling provided as
part of the project, an increased
Representatives of Sistren (Tek It To Dem And Rise Up Wi
number of families were referred to a
Community project)
national agency providing support to
families.29 Information is not currently available, however, on whether these noted changes were sustained
and/or facilitated additional changes in individual and/or collective behaviours.30
28
Annual Progress Report for the period 1July 2010 to 31 December 2010.
29
Available data did not provide information on the exact scope of this noted increase.
30
One key limitation was that the project was too short to be able to achieve or capture long-term changes, because it was
interrupted by the 2010 Tivoli Gardens incursion, which led to a large number of targeted men being forced to leave their
communities. The implementing NGO has not had the capacity or resources to do follow-up work in the communities after the
project ended.
15
A tangible result of the SSA project
has been that one female participant
of training sessions on gender, youth
and violence has since established
two companies and founded an NGO
to support employment opportunities
for women and work with various
stakeholders, including VAW
survivors, to provide them with
various types of support.31
Mid- to long-term results 32
Mainstream media are not only a means to influence public
discourse, but also an indicator of changes in social norms.
In order to influence social norms it is important to work directly with
and inside communities. Participatory and creative approaches such
as working through role play/drama have been shown as an
effective way to share information, and as a means for different
community members to express their beliefs and feelings.
Working with parents (both fathers and mothers) is of particular
relevance given their (unintended) role in perpetuating the social
acceptance and continuation of violence in Jamaica. Also, providing
male and female children and youth with alternative ways of dealing
with crisis or conflict is likely to contribute to VAW prevention.
When asked about examples of
progress towards ‘bigger picture
changes’ as regards VAW in
Jamaica, all consulted stakeholders
referred to a time period starting considerably before 2008 and spanning the last 10-15 years. They widely
agreed that Jamaica is still far from reaching a state where women and girls are free from all forms or threat
of GBV or where VAW survivors are fully supported to live their lives.33 Several individuals even
expressed concerns that there might be a negative trend of increasing violence and ‘backlash’ from men
(although not all stakeholders agreed on whether this was the case). At the same time, most stakeholders
noted a number of positive changes, as outlined below. In view of the very limited amount of ‘hard’ data
available on VAW-related changes in Jamaica, most of the information below is based on stakeholder
perceptions and anecdotal examples.
Institutional and societal norms and behaviours becoming more supportive of EVAW
There was wide agreement among consulted stakeholders that that there has been a significant increase in
public awareness of VAW over the past decade, and increasingly so during the past five years. In their
view, this has resulted in a number of behavioural changes, in particular an increase in the reporting of
VAW-related cases (to relevant institutions and the media), and an increase in men’s and women’s
willingness to publicly discuss the issue. One stakeholder noted that the willingness to express concern on
VAW has become ‘politically correct’, indicating a change in related social norms, at least at the national
level, and in relation to public communication. In this context, it was also noted that VAW-related issues
are now frequently discussed in Jamaican mainstream media (e.g. on popular television or radio talk
shows), while a decade or so ago the topic was taboo.
Overall, stakeholders noted that a lot remains to be done to ensure that institutional and societal norms and
behaviours are supportive of EVAW and provide the required support to VAW survivors. In this context
almost all interviewees highlighted the need to work directly with communities as a whole to address some
of the deep-rooted beliefs and behaviour patterns perpetuating the use of violence in Jamaica.
31
Source: Project Evaluation Report.
32
Since regional and subregional strategies relevant for the period under review do not distinguish between shorter and longer-term
results, this section is structured according to the reconstructed corporate results logic included in the final evaluation Inception
Report. This results logic includes two additional mid- to longer-term results, namely “Best practices for ending violence against
women and girls are integral to/ integrated in United Nations system-wide approaches to development;” and “Greater coherence
and accountability for the United Nations system’s work on ending violence against women and girls.” These two results are not
addressed in the country case study as they focus on management, rather than development results.
33
Overall envisaged impacts of UN-Women’s work on ending violence against women and girls as outlined in the (draft)
reconstructed results logic.
16
Government and service providers becoming increasingly accountable to women and girls for
prevention, protection and response to VAW
Laws and policies existing prior to 2008 were largely seen as insufficient to systematically address VAW
issues in Jamaica. The draft NSAP on GBV was viewed as having the potential to systematically strengthen
institutional (government and service provider) accountability for prevention, protection and response to
VAW, but that its actual impact remained to be seen and depended on the speed, extent and quality of its
implementation.
Women and girls who are survivors of VAW demanding and having access to required services
While there are still significant weaknesses in the amount and quality of existing services (shelters,
counselling services, access to justice), stakeholders noted some improvements, some of which – such as
the creation of CISOCA in 1989 – date back more than 20 years. At the same time they noted that frequent
cases of reported police violence against both men and women, and insensitive behaviour of justice sector
personnel towards VAW survivors continued to weaken women’s (and other community members’)
confidence in available services. It was also highlighted that women in rural areas of Jamaica tend to have
fewer, if any, access to specialized services for VAW survivors.
4.2.4 UN-Women’s intergovernmental mandate
While work related to the
intergovernmental/normative
dimension of UN-Women’s mandate
is largely carried out at the global
Participation of national actors in regional and/or global events (e.g.
headquarters level, the evaluation
around CSW and CEDAW) contribute to informing national
explored whether and what types of
processes.34
linkages existed between countrylevel operational work in Jamaica and global-level normative work.
In this context, both government and civil society stakeholders acknowledged UNIFEM’s (and now UNWomen’s) continued assistance for strengthening their participation in and contributions to regional and
global forums, in particular related to preparations for CEDAW and CSW meetings. These events were
seen as highly valuable opportunities for learning with and from other gender advocates. Some CSO
representatives expressed their gratitude to UN-Women and UNIFEM for introducing them to CEDAW,
and helping them use the convention as a tool to educate their own members and other stakeholders on
women’s rights and related government obligations.
4.2.5 UN-Women’s coordination mandate
UN-Women’s most visible contributions to VAW-related inter-agency coordination in Jamaica (and the
region) have related to the UNiTE campaign. In this context, several consulted stakeholders noted that the
campaign is still relatively young in the Caribbean, having only been launched in 2010.
34
This lesson is also relevant in view of UN-Women’s corporate mandate of supporting and influencing global normative
processes in that it indicates that and how work at national and global levels (can) link to each other.
17
Some consulted individuals described the campaign overall, and in particular the annual joint events, as a
positive (and first ever concrete)
example of United Nations
The Caribbean launch of the UNiTE campaign in October 2010 was
coordination around VAW-related
attended by a wide range of government Ministers, members of the
judiciary, and representatives of governmental agencies,
issues in the Caribbean. Some
organizations working on GBV and the United Nations system.
UN-Women staff also pointed
Participants agreed to the Caribbean UNiTE Consensus, affirming
out, however, that it required
state obligations to end VAW, and stating their support to the goals
significant efforts on their part to
of the campaign.35
ensure active participation and
financial contributions from other United Nations entities, and that it had at times been challenging to
ensure that the focus of the campaign remained a joint United Nations (system) campaign, rather than an
event sponsored by a particular agency.
Staff from other United Nations
entities in Jamaica remarked that
past activities around the UNiTE
campaign had led to a number of
successful meetings and
In the Caribbean, key challenges to inter-agency coordination on
sensitization events (with, for
VAW, including through joint programming, are: i) most United
example, parliamentarians), which in Nations entities do not have offices in each country; ii) existing
offices tend to have limited human and financial resources, and, as
turn had resulted in a list of specific
a result, iii) programming tends to focus on short-term interventions
recommendations aiming at
and/or one-off events.
substantive changes, rather than
The UNiTE campaign has provided structured occasions for United
focusing exclusively on raising
Nations entities to jointly plan and implement VAW-related activities
awareness. However, at the time of
on an annual basis.
the country visit information was not
available as to whether these
recommendations had been followed-up and/or implemented by the respective stakeholders. Several staff
noted that, until now, while UNiTE campaign-related interventions were seen to be relevant and effective
in terms of raising visibility and awareness of VAW, they tended to be ‘one off’ events with limited, if any,
follow-up.36 Most consulted national stakeholders in Jamaica were not aware of the campaign, but had not
been involved in specific activities so were not aware of specific results that the campaign had achieved.
While the SSA project explicitly aimed to link its public awareness-building work to the UNiTE campaign
the evaluation team did not find specific examples of how this was done or with what effects.
As noted above, UN-Women and UNIFEM’s coordination role in the United Nations was also facilitated
the process of collecting input to the Jamaica CEDAW report from other United Nations entities, which
was seen as a valuable contribution.
4.2.6 Sustainability of results
The table below summarizes key factors likely to support or hinder the sustainability (i.e. the continuation
and dynamic adaptation) of results towards EVAW achieved in Jamaica to date.
Dimension
35
Supportive factors
Challenging/limiting factors
Available from http://www.eclac.cl/mujer/noticias/noticias/5/41145/CaribbeanUNITEConsensus.pdf.
36
As noted by UN-Women staff, UNICEF, UNFPA and UN-WOMEN recently put a committee in place to sustain their
collaboration and ensure follow-up on the gains achieved under the UNiTE campaign to date.
18
National
ownership and
leadership
Explicit government commitment to addressing
VAW, including from the Prime Minister.
Commitments e.g. under CEDAW
Difficult economic situation may impact the
government’s willingness and ability to address
VAW issues.
Jamaica has not yet signed the CEDAW Optional
Protocol.
Only a few examples to date of government taking
the lead to institutionalize and/or expand VAW
efforts, such as trainings for service providers.
Increased
capacity of
women’s
organizations/
gender
equality
advocates
Strong, experienced women’s organizations.
History of good collaboration between
government and civil society.
Jamaican gender advocates are embedded in
national and regional networks. Related
support but also ‘peer pressures’ can
contribute to sustainability.
Jamaica’s status as a middle-income country
makes it difficult to attract donor funding. This can
negatively influence the ability of all actors working
on VAW to continue and/or expand their work.
Recent concerns by NGOs about decreasing quality
of collaboration with the government over gender
equality issues.
Institutionaliza
tion of VAW in
relevant policy
mechanisms
and
institutions
NSAP provides a framework and mandate for
systematically and comprehensively
addressing VAW.
It is not yet clear whether the existing national
leadership, buy-in from other government actors
and resources will suffice to effectively
operationalize and implement NSAP.
Overall, while the existing supporting factors create a conducive environment for the continuation and
dynamic adaptation of results achieved to date, the noted gaps in national government leadership and
(financial) capacity may pose significant limitations to the sustainability of results. This is particularly
evident in case of the draft NSAP which, on the one hand is a major achievement in view of
institutionalizing VAW, but on the other hand, will not have a significant impact if it is not effectively
operationalized, implemented and owned by national decision makers.
4.3
Organizational strengths and weaknesses in
managing EVAW: Lessons learned
This section presents evaluation findings on what have been and currently are UN-Women’s organizational
strengths and weaknesses, and lessons learned from its predecessor entities in view of planning,
implementing, monitoring and evaluating their EVAW-related work.
19
Strengths and weaknesses37
Consulted stakeholders emphasized
the following strengths of the UNWomen and UNIFEM Barbados
office team which positively
influenced its ability and approach to
planning and implementing VAWrelated interventions during the
period under review.
In the Caribbean, UN-Women and UNIFEM’s successful work to
facilitate regional partnerships has been helped by the
comparatively small size of the region and each of its states, and by
similarities between countries’ legal and political systems.
Continuity of core staff members in the (sub)regional office
contributed to UN-Women and UNIFEM building trust and long-term
relationships with and among national and regional partners.
Accessibility and dedication of UNWomen and UNIFEM staff: All
UN-Women and UNIFEM’s status as United Nations entities allowed
consulted government and civil
it to play a facilitating role, and contributed to leveraging the status
society partners reported that UNof and resources for national actors.
Women staff had been highly
responsive to requests for support and had been available at all times. Support was not limited to partners
receiving project specific funding, but was provided to all actors addressing VAW (and/or related broader
issues of women’s human rights). All consulted national partners stressed that UN-Women (in particular
the former RPD) had provided strong support despite UN-Women not having a country office in Jamaica.
Technical expertise and sound knowledge of the Caribbean subregion: National partners described
UN-Women and UNIFEM staff as highly competent and knowledgeable of the specific realities of the
Caribbean region, of global trends and issues on VAW, and on broader issues of women’s human rights.
Continuity of support and partnerships: UN-Women and UNIFEM supported and worked with the same
government and CSOs over extended periods of time. While some of these partners may not have had any
VAW specific projects during the period reviewed, they have continued to be involved in VAW-related
work and networks at national and regional levels. One CSO representative noted, for example, that her
organization still uses and benefits from VAW tools that UNIFEM had helped to develop many years ago.
Resource hub: Almost all consulted national stakeholders mentioned that they had used and benefited
from information, tools, guidance materials etc. available on UN-Women and UNIFEM’s Caribbean and
corporate websites, including the Virtual Knowledge Centre for VAW. Another important resource is the
electronic database on substantive and procedural laws on GBV which was established as part of the
regional SSA project. 38
Facilitating regional/global collaboration - Partnerships and (regional and global) networking:
Stakeholders appreciated UN-Women and UNIFEM’s ability and efforts to support exchanges between and
collaboration among actors at global and regional levels. CSOs and government stakeholders all positively
reported that UNIFEM (and now UN-Women) “forced people to collaborate,” e.g. in relation to
international norms and commitments such as CEDAW. They also stressed that UN-Women and
UNIFEM’s position as part of the United Nations system allowed it to play a facilitating role in bringing
together key actors from across the region.
Leveraging status and resources: Several CSO/NGO stakeholders noted that partnering with UN-Women
and UNIFEM helped raise their organization’s credibility in the eyes of other actors (government actors or
potential funders) who otherwise might not have considered working with them.
Available data indicate the following challenges and/or limitations in view of UN-Women and UNIFEM’s
ability to plan, implement, monitor and evaluate its work on VAW in Jamaica.
37
Relates to evaluation question 2.1.
38
Available from http://www.unifemcar.org/GBVlawportal/.
20
No permanent physical presence in Jamaica: Most consulted stakeholders agreed that the absence of a
country office in Jamaica limited UN-Women and UNIFEM’s ability to quickly respond to events and
emerging opportunities on the
ground. Government partners also
In the fall of 2012, five women and a young girl were raped in Saint
pointed out that all external
James (Jamaica). The event led to a public outcry and the first
investments/support to government
spontaneous demonstrations by women activists in years. It also led
agencies are usually tracked by the
the Prime Minister to bring together a variety of government and
Planning Institute of Jamaica (PIJ)
non-government actors to jointly discuss strategies to address VAW.
Not being present on the ground, UN-Women was not able to
in order to avoid duplication of
support or capitalize on the resulting momentum for change.
efforts supported by different
donors such as the United Nations
and the European Commission. However, without a country office the PIJ had not been notified of UNWomen and UNIFEM’s support to the Jamaican BWA.
Implicit, rather than explicit VAW theory of change and strategy: According to staff members,
UNIFEM interventions between 2008 and 2011 were deliberately designed to build upon earlier VAWrelated efforts, and support UNIFEM staff members’ understanding of the ‘big picture’ i.e. of what needed
to be done in order to address key VAW-related gaps at national and regional levels. This understanding
has, however, not been explicitly captured in any documents.39
Project, rather than programme-based approach: While UN-Women and UNIFEM staff aimed to
ensure continuity and coherence of VAW-related interventions (i.e. by engaging in long-term partnerships
beyond the boundaries of time limited projects), all reviewed VAW specific projects experienced
challenges due to their short-term nature, e.g. in relation to opportunities for continued follow-up, and/or
replication of successful models. This includes, but is not limited to, projects funded by the UN Trust Fund.
Monitoring and evaluation: UN-Women staff noted that their capacity to effectively and systematically
monitor and assess progress and results of VAW-related work throughout the Caribbean region, has been
and continues to be, limited due to the absence of dedicated staff and with existing staff members already
stretched by having to cover a wide range of issues in a large geographic area. Available reports on projects
implemented during the period under review tend to be activity-focused and provide limited, if any,
analysis of contributions to results. Further, neither UN-Women, UNIFEM nor their implementing partners
have had the time or resources to systematically track changes and project contributions over longer periods
of time.
Knowledge management and theory development: Consulted stakeholders noted that the projects
conducted with UN-Women’s or the UN Trust Fund’s financial support had generated a wealth of
promising approaches, in particular creative and participatory ways of engaging community members
including men (e.g. work by the NGO, Sistren), and working with local artists as media to ‘spread the
message’ (e.g. as part of the UNiTE campaign’s approach and WMW’s work). To date UN-Women has not
been able to systematically capture related lessons or use them to inform the development of (regional or
corporate) strategies, approaches or theories.40 Consulted UN-Women staff largely attributed such
limitations to being already stretched and having no or limited time to engage in additional activities.
39
The UNIFEM’s subregional strategy 2008-2011 captures some elements that UNIFEM set out to address, but does not provide
an explicit outline of how changes in these areas are envisaged to ‘fit together’ and to what types of results they are envisaged to
contribute. Documents relating to the regional SSA project provide more insights into key assumptions underlying violence against
women and girls-related work, but focus, of course, on the particular aspects addressed by the project, thus capturing only part of
UNIFEM’s overall work on violence against women and girls.
40
The Barbados country office is currently developing a concept note on working with men.
21
Guidance for supporting UN
Trust Fund grantees: Consulted
UN-Women staff reported that
they were not fully clear on their
expected type and extent of
involvement in view of supporting
the work of UN Trust Fund
grantees on the ground.
While consulted UN Trust Fund grantees in Jamaica were aware
that their project funding had come through the Trust Fund, they
considered the UN Trust Fund, UN-Women and UNIFEM to be one
and the same since contact persons were always UNIFEM or UNWomen staff.
Implications for UN-Women
As further explored in Section 4.4, most if not all of the previous observations on organizational strengths
and weaknesses continue to (positively or negatively) influence UN-Women’s current work on VAW. UNWomen is able to build upon and expand the strong networks at national and regional levels established
under UNIFEM. Also, UN-Women can build on UNIFEM’s positive reputation as regards its technical
expertise and professional dedication. The latter was further emphasized by the fact that key staff members
had remained the same during the transition from UNIFEM to UN-Women. At the same time, the noted
organizational weaknesses of UNIFEM have not yet been effectively addressed and are therefore likely to
continue to affect the work of UN-Women.
4.4
UN-Women’s strategic positioning
This section presents evaluation findings in Jamaica concerning the extent to which UN-Women has
strategically positioned itself to add value in preventing and responding to VAW in global,41 regional and
national contexts. UN-Women’s strategic positioning in relation to VAW in Jamaica is strongly influenced
by the organizational strengths and weaknesses outlined in Section 4.3 and by the contextual factors
highlighted throughout this case study.
Contextual factors42
Logistical challenges for UN-Women’s work include the geographic nature of the region with many small
island states, and that it cannot always be present in each country. As noted in Section 4.2.4, it may pose
particular challenges in view of UN-Women’s inter-agency coordination role with regards to VAW, given
the small size and geographic distribution of offices of different United Nations entities in the region. At
the same time, the existing linkages and similarities of countries in the Caribbean have shown to invite and
facilitate approaches which focus on building regional capacity and momentum, and in this regard UNWomen can base its future work on a broad base of existing experience and partnerships. Other key
contextual factors likely to influence UN-Women’s current and future strategic positioning with regards to
VAW are: i) the continued need to support national efforts to address VAW across the region, given the
continuously high prevalence and incident rates; and ii) UN-Women being only one of two entities (the
other being UNFPA) specifically focusing on VAW issues.43 A potentially challenging factor is the middleincome status of most Caribbean countries, which may negatively affect donor interest and willingness to
invest in the region.
41
Due to the nature of the country case study, the following reflection focuses on UN-Women’s positioning in view of the
respective regional and national contexts.
42
Relates to evaluation sub-question 3.1.
43
Factors i and ii addressing issues of ‘demand’ and ‘supply’ of support for VAW-related work.
22
Progress in defining and operationalizing UN-Women’s mandate44
The process of defining and operationalizing UN-Women’s overall mandate and defining implications for
VAW-related work, in particular, is still a ‘work in progress.’ There is a need for guidance and clarification
among UN-Women staff in the Barbados office and UN-Women partners in Jamaica. Key observations in
this regard are outlined below.

At the time of writing, UN-Women’s future approach to and overall ‘vision’ for addressing VAW
in Jamaica (or the Caribbean as a whole) has not yet been clearly articulated. The most recent LAC
subregional annual workplan (December 2011) does not provide specific guidance, nor has UNWomen developed an explicit framework or strategy for its VAW-related work at the global and/or
regional levels that could inform future interventions in Jamaica.

Staff from UN-Women and other United Nations entities consulted indicated that they are still
unclear as to what UN-Women’s inter-agency coordination role can and should look like (in
general and with regards to VAW specifically). The Barbados subregional office is currently
awaiting further guidance from the newly established LAC regional centre in Panama and
headquarters. In the meantime, UN-Women staff in Barbados, in particular the recently appointed
Coordination Specialist, are consulting with other United Nations entities in the Caribbean to
explore their needs and the related implications for UN-Women’s inter-agency coordination role. It
is expected that the Coordination Specialist position will provide a more systematic channel for
developing joint programming for VAW (and other areas of UN-Women programming) across the
six UNCTs with which the Caribbean subregional office interfaces. The (limited) data further
indicates that other United Nations entities are also unsure about how UN-Women’s coordination
role could add most value
to their and other agencies’
Some consulted stakeholders in Jamaica noted that they had paid
work in relation to VAW.

Consultations with UNinterviewee stating “[i]t doesn’t matter what they are called, in the
end they are still about helping women.”
Women staff in Barbados
and stakeholders in Jamaica
indicate that the transition from UNIFEM to UN-Women has not (yet) resulted in many observable
changes45 likely to influence the extent of UN-Women’s strategic positioning as regards VAW.
UN-Women staff hope the creation of UN-Women might lead to an increase in human and
financial capacity of existing field offices, including the office in Barbados, although to date this
has not taken place.
little attention to the transition from UNIFEM to UN-Women with one
Overall, UN-Women appears to be
well-positioned to continue to
support efforts of national (and
regional) partners to end VAW in
Jamaica and the Caribbean region.
UN-Women can build on
UNIFEM’s experience and positive
reputation, in particular given its
role as a ‘knowledge broker.’
Consulted NGO partners in Jamaica feel that UN-Women and
UNIFEM’s mandate, with its specific focus on women, positively
distinguished it from other United Nations entities or other
development partners. They regarded UN-Women as their ‘natural
ally,’ whereas collaboration with most other United Nations entities
sometimes required more efforts to identify suitable linkages.
UN-Women has sustained the
networks and partnerships with and among government and civil society actors at national and regional
levels that have been established with support from UNIFEM. UN-Women is working on expanding these
44
Relates to evaluation sub-question 3.2.
45
Other than the creation of the coordination specialist position tasked with inter-agency coordination.
23
partnerships, e.g. to engage with more actors who focus on working with men. The existing and emerging
partnerships form a strong foundation for UN-Women’s future work on VAW in Jamaica and the
Caribbean in that: i) working with a wide range of stakeholders is a condition for supporting coordinated,
multi-sector approaches at the national level to preventing and responding to VAW; and ii) crosscountry/regional partnerships and exchange are likely to continue to form a key part of UN-Women’s
overall approach to affecting change in the Caribbean region.
In order to make best use of this positive foundation, UN-Women will need to further define and
operationalize its overall mandate (especially in relation to its new responsibility of inter-agency
coordination), and further elaborate its corporate, regional and national view of and strategy for addressing
VAW.
5.
Recommendations
The following suggestions and recommendations to the UN-Women offices in Barbados and headquarters
are based on the data collected for the country case study.
Strategic Question 1: Contributions to results
The UN-Women subregional (multi-country) office in Barbados should:
1) Improve VAW coordination efforts: All consulted stakeholders working in Jamaica emphasized
the need for all actors (including, but not limited to UN-Women) to further enhance the
coordination of their efforts to end VAW in light of the scarce resources available. For UNWomen, this could include providing additional support to BWA to implement the NSAP on GBV
thereby ensuring the plan lives up to its envisaged role as a mechanism for bringing together
stakeholders from different sectors.46 UN-Women could, for example, help BWA develop a
feasible (graded and staged) approach to implement the NSAP, and an approach to monitor its
implementation. In this context, UN-Women may also want to explore how it can best support
BWA’s collaboration with other government actors (line ministries).
2) Encourage and support measures to enhance sustainability of capacity development
initiatives: The UN-Women Caribbean office should avoid supporting ‘one-off’ training or
similar events, and should encourage national partners to plan for and implement measures to
enhance the potential sustainability of results, for example, by planning for systematic follow-up
of trainees.
3) Ensure national tracking of VAW support: To ensure future support can be tracked in national
systems and to avoid overlap with other (especially non-United Nations) types of international
support, the UN-Women Caribbean office should ensure that PIJ is informed of all its future
initiatives with BWA or other government entities in Jamaica.
Strategic question 2: Organizational strengths/weaknesses
4) Enhance systems to report on results and lessons learned: The UN-Women Caribbean office
should strengthen its M&E and knowledge management capacities so that it can more
systematically capture contributions to results and lessons learned. This may, however, not be
possible without additional dedicated financial and human resources (see recommendation 8).
46
Assuming that UN-Women will have to continue to strongly rely on short-term, project-based funds to support VAW-related
work, the NSAP – if operationalized effectively – can provide an overarching framework to anchor individual interventions.
24
5) Further develop its theories and approaches to prevention of VAW: By pushing ahead with
developing an approach to working with men on VAW issues and identifying the underlying
assumptions, the UN-Women Caribbean office could not only benefit the Caribbean but could also
contribute to shaping UN-Women’s corporate understanding of and approaches to preventing
VAW.
UN-Women headquarters should:
6) Ensure that human and financial resources for the Caribbean subregional (multi-country) office
are aligned with the expanded mandate of UN-Women and are adequate to carry out related tasks
(including inter-agency coordination) and also for strengthening M&E capacities at the country
level.
7) Provide more frequent and explicit guidance to regional/country focal points on managing the UN
Trust Fund, to clarify the type and scope of support required to follow the work of Trust Fund
grantees.
Strategic question 3: UN-Women strategic positioning
8) Continue to work towards identifying new/additional entry points for VAW coordination
with other United Nations entities: While awaiting further guidance on how to fulfill its interagency coordination role, the UN-Women Barbados office should continue to explore possible
entry points for VAW-related coordination and/or collaboration with other United Nations entities
in Jamaica. This can build on existing discussions within the Jamaica UNCT, and bilateral
explorations with existing partners, in particular UNFPA and UNICEF. With UNFPA, continued
discussions are needed to further clarify and make explicit a suitable division of labour around
sexual violence issues. In the short-term, there may also be opportunities for community outreach
meetings during Jamaica’s 50th anniversary celebrations, and for collaboration with UNICEF on
VAW prevention approaches in the education sector and in the broader context of its corporate
commitment to gender mainstreaming.
9) As soon as feasible, provide and share corporate and/or regional guidance on: i) how to
operationalize UN-Women’s mandate, in particular with regards to inter-agency coordination; and
ii) UN-Women’s corporate (and regional) understanding of and approach to addressing/ending
VAW.
Implications for the overall evaluation
6.
The following observations made in the context of the Jamaica country case study deserve particular
attention when comparing the results of all seven country case studies conducted as part of this evaluation,
as well as in compiling the overall synthesis evaluation report:

The particular nature of the Caribbean as a comparatively small geographic (sub)region consisting
of small island states with similar cultural, political and socio-economic contexts;

The strong emphasis given by UN-Women and UNIFEM on working at the (sub)regional level as a
way to use available resources efficiently, but also to stimulate (sub)regional dynamics for change;

The emphasis placed on strengthening state accountability for preventing and responding to VAW,
with the NSAP a key tool for furthering this accountability; and

The various efforts made and (often creative) approaches used for working with men and women,
girls and boys at the community level in an effort to positively influence VAW prevention.
25
The table below summarizes key information derived from the Jamaica country case study relevant to
informing the overall evaluation, in particular in view of the evaluation’s intent to work towards
elaborating one (or more) theory/theories of change for UN-Women’s work on VAW. The information is
structured according to the three dimensions of UN-Women’s mandate.
UN-Women strategies/ types
of interventions in Jamaica
Dimension
Operational
 Providing financial and




technical support to help
strengthen the capacity of
national partners, in
particular the national
gender machinery and
women’s organizations.
Providing access to relevant
information, tools, and
(human) resources
constitutes a key element of
capacity strengthening work.
Facilitating dialogue
mechanisms among and
between government and
non-government actors at
national and regional levels
Supporting national partners
to collect, analyze and use
data on the national context
of VAW for evidence-based
policy making.
in developing context
specific training programmes
for service providers
Linkages to results outlined
in reconstructed corporate
results logic
 UN-Women’s VAW-related
work in Jamaica addressed
– albeit to varying degrees –
all four operational
(operational) short-/mid-term
results and the three mid- to
long-term results outlined in
the preliminary results model
included in the evaluation
47
Inception Report.
 Prevention work conducted
with male perpetrators of
VAW as part of the PfP does
not easily ‘fit’ under any of
the noted results. It may be
necessary to explore if there
is a need to formulate an
additional result to capture
envisaged results focused
on VAW prevention.
Implicit assumptions
underlying VAW work in
Jamaica/risks
 Individual and collective




Inter-agency
coordination
47
 Mobilization around the
UNiTE campaign and in
relation to CEDAW reporting
knowledge of VAW issues
forms the basis for
influencing institutional and
social norms, and
behavioural changes.
Bringing about changes in
attitudes and behaviours
requires community-level
interventions tailored to the
national and local contexts
and address a wide range of
stakeholders.
National response to VAW
needs to be coordinated and
multisectoral in order to be
effective.
Creating networks and
exchange among
government and nongovernment stakeholders at
the (sub)regional level
enhances individual and
collective capacities, and
creates positive ‘peer
pressure’ that can positively
influence national
government commitment to
EVAW.
Evidence-based VAW
specific policies/ action plans
and related monitoring
frameworks enhance
government accountability
for addressing VAW.
 Contribution to enhancing
 Challenges in securing
the United Nations system’s
mobilization of ending
violence against women and
girls activities and
investments.
 No visible contribution to
strengthened United Nations
system accountability in this
regard.
continued participation and
financial contributions for
joint VAW activities under
the UNiTE campaign from
other United Nations entities.
 Limited ownership and
shared understanding of the
joint nature of work related to
UNiTE.
See Appendix VII
26
Dimension
Normative
UN-Women strategies/ types
of interventions in Jamaica
 Promoting knowledge and
use of CEDAW among
national and regional actors
 Facilitating national actors’
participation in global fora
(e.g. CSW) to inform or ‘back
up’ national processes
results logic
Jamaica/risks
 UN-Women’s and national
partners’ work guided by
CEDAW.
27
Appendix I
National Reference Group
Faith Webster, Bureau of Women’s Affairs, Jamaica
Mildred Crawford, Jamaica Network of Rural Women Producers
Linnette Vassell, Women’s Resource & Outreach Centre
Jewel Quallo Rosberg, United Nations Population Fund (UNFPA)
29
Appendix II
Case Study Methodology and
Evaluation Matrix
Purpose
The country site visits provide context specific insights to both the evaluation’s backwards and forwardlooking components. The retrospective insights involve gathering information on the ‘distance travelled’
in terms of EVAW to date; the contributions of UN-Women’s predecessor entities to this progress in the
respective country (including questions about linkages between country specific operational work,
coordination and regional/global normative work); and context specific lessons learned. The forwardlooking perspective will review factors shaping UN-Women’s current strategic positioning for VAWrelated work in each country, and will explore the needs and expectations of UN-Women’s country and/or
regional based staff and other United Nations entities with regards guidance and support.
Approach
The case studies contribute to specific evaluation sub questions identified in the evaluation matrix in the
Inception Report. A more specific breakdown of the lines of inquiry applied to each country, and their
respective contributions, is provided below and was used in developing data collection instruments.
CSO focus
interviews or focus
National
Government
interviews
UN-Women
interviews
UN CMT interviews
EVALUATION QUESTIONS
Observation
LINES OF INQUIRY
METHODS
Country records
Case Studies
1. For the period 2008-2011, what was the contribution to results made by UN-Women’s predecessor entities towards
ending violence against women and girls? What are related lessons learned?
1.1 During the period 2008-2011, how did contextual and environmental
factors affect or influence the VAW work of UN-Women’s predecessor
entities?
√
√
√
√
√
√
√
√
√
1.6 To what extent are the global, regional and national-level results achieved
with the support of UN-Women’s predecessors entities likely to be sustained
over time?
√
√
1.7 What are the implications of results achieved in EVAW to date and related
lessons learned for UN-Women’s current and future work in this area?
√
√
1.2 How relevant and responsive has the work of UN-Women’s predecessor
entities been to global, regional and national commitments and priorities
including those within the United Nations?
1.3 What have been UN-Women predecessor entities’ key contributions to
achieving national results on preventing VAW and expanding access to
services at country level?
√
1.5 What have been UN-Women’s predecessor entities’ contributions to
results with regards to coordinating EVAW related efforts inside (and outside)
the United Nations system?
√
√
√
√
√
√
√
√
√
√
√
2. What have been and are organizational strengths and weaknesses of UN-Women and lessons learned from its
predecessor entities in view of planning, implementing, monitoring and evaluating their EVAW related work?
30
2.1 What have been the strategic organizational strengths and weaknesses of
UN-Women’s predecessor entities in designing, implementing, and monitoring
and evaluating EVAW related interventions?
CSO focus
interviews or focus
National
Government
interviews
√
UN-Women
interviews
√
UN CMT interviews
Observation
LINES OF INQUIRY
METHODS
Country records
Case Studies
√
√
3. To what extent has UN-Women strategically positioned itself to add value in preventing and responding to VAW in
global, regional and national contexts?
3.1 What have been key developments in the global, regional, national and
United Nations contexts since the creation of UN-Women, and how have these
(positively or negatively) affected UN-Women’s ability to fulfill its normative,
operational and coordination obligations in relation to EVAW?
√
√
3.2 What progress has UN-Women made to date in clearly defining and
operationalizing its mandate for EVAW aligned with its normative,
operational and coordination dimensions?
√
√
√
√
√
Data collection instruments were developed for the October Jamaica country visit and have been revised
based on this pilot. The revised interview guides accompany this briefing note and case study team
members were briefed on the evaluation approach and interview guide. Interview notes were recorded by
the team members using the guides, allowing for analysis within each country and across the country case
studies. An interview record template and document review tool were also provided.
31
Appendix III
Documents Reviewed
UN-Women and UNIFEM documents
UN-Women (2012). Caribbean Consultations. Internal document. 16 March.
UN-Women (2011). LAC-Caribbean Subregional Office Annual Workplan, December.
UN-Women (n.d.). LAC Regional Strategy 2008-2011.
UN-Women (n.d.). Concept Note: Men as Partners in the achievement of Gender Equality and the
Elimination of Violence against Women.
UN-Women (n.d.). Caribbean Sub-Regional Strategy 2008-2009
UNIFEM, Barbados Office (n.d.). Concept Note: UNIFEM Project on Strengthening State Accountability
and Community Action for Ending Gender-Based Violence in the Caribbean
Documents related to specific UN-Women, UNIFEM or UN Trust Fund projects
Beckford, Curline (2012). Evaluation Report: Implementation of the Partnership for Peace – A Regional
Violence Intervention Programme (Phase 2).
Bureau of Women’s Affairs/UN-Women/ACCP (2011). A Comprehensive Multi-Sector National
Strategic Action Plan to Eliminate Gender-Based Violence in Jamaica.
Bureau of Women’s Affairs/UN-Women/ACCP (n.d.). Evaluation report – Strengthening State
Accountability and Community Action for Ending Gender-Based Violence in the Caribbean (2009-2011).
Bureau of Women’s Affairs and UNIFEM (n.d.). Interim Report on Strengthening State Accountability
and Community Action for Ending Gender-Based Violence in the Caribbean.
Chambers, Tania (2009). Policing and Prosecution of Sexual Offenses in Jamaica: A Baseline
Assessment.
Dispute Resolution Foundation & UNIFEM Partnerships for Peace (2008). Report of the Violence
Intervention Workshops in Jamaica, 3-7 March and 4 April 2008.
Ferreira-Sutherland, Violet (2011). National Strategic Action Plan to Eliminate Gender-Based Violence
in Jamaica. Bureau of Women’s Affairs, Ministry of Youth, Sports & Culture, Government Of Jamaica &
UN-Women & Association of Caribbean Commissioners of Police (ACCP).
Ferreira-Sutherland, Violet (2010a). Training Curriculum, Gender, Youth & Violence: Strengthening
State Accountability and Community Action for Ending Gender-Based Violence in the Caribbean Project,
2009-2011. Bureau of Women’ Affairs/UN-Women/ACCP.
Ferreira-Sutherland, Violet (2010b).Training Manual, Gender, Youth & Violence: Strengthening State
Accountability and Community Action for Ending Gender-Based Violence in the Caribbean Project,
2009-2011. Bureau of Women’ Affairs/UN-Women/ACCP.
Ferreira-Sutherland, Violet (2010c). Strengthening Understandings of how Borders and Boundaries affect
lives of Women and Men in the Lyndhurst/Greenwich Park Community. Women’s Resource and Outreach
Centre Ltd.
Imani, M. Tafari-Ama (2009). Monitoring and Evaluation Plan of Tek It To Dem and Rise Up Wi
Community Project.
N.D. (2011). Complaints and Response Protocol on Gender-Based Violence for the Office of the Public
Defender in Jamaica.
32
Partnership for Peace (2009). Summary of the Regional Expert Group Meeting, 9-10 March.
Partnership for Peace (2011). Report on the Training Programme in Jamaica, 29 August - 2 September.
Salter, Veronica (2009). Actions on Ending Violence against Women in Jamaica: A National Assessment.
Bureau of Women’s Affairs.
UN-Women Caribbean subregional office (2012). Concept Note for a Regional Programme of Action –
Strengthening State Accountability and Community Action for Ending Gender-Based Violence in the
Caribbean.
UNIFEM, Caribbean Office (n.d.). Strengthening State Accountability and Community Action for Ending
Gender-Based Violence in the Caribbean. Available from http://www.unifemcar.org/GBVlawportal/.
United Nations Trust Fund to End Violence Against Women (UN Trust Fund) (2010). Final Report –
Enhancing Public Access to Protection under the Laws on Domestic and Sexual Violence.
UN Trust Fund (2008). Tek It To Dem and Rise Up Wi Community Project Document.
UN Trust Fund (n.d.). Reducing Gender-Based Violence in Jamaica: Increasing Awareness, Enhancing
Access to Protection, Strengthening Responses. Available from http://untf-evaw.org/beta/?grantees=175.
UN Trust Fund (2011). Six-Month Progress Report on Tek It To Dem and Rise Up Wi Community
Project, January 2011-June 2011.
Project, January 2010-June 2010.
Project, December 2008-June 2009.
Other documents
Association of Women’s Organizations in Jamaica and the CEDAW 2012 Working Group (2012).
Alternative Report Jamaica.
Bellony, A., Alejandro Hoyos and Hugo Nopo (n.d.). Gender Earning Gaps in the Caribbean: Evidence
from Barbados and Jamaica. IDB Working paper Series No. IDB-WP-210.
Bureau of Women’s Affairs (2011). National Policy for Gender Equality – Jamaica.
Bureau of Women’s Affairs (2010). Combined sixth and seventh periodic report of States parties
Jamaica; January 2003 - September 2009.
CEDAW (2011). Consideration of reports submitted by States parties under article 18 of the Convention
on the Elimination of All Forms of Discrimination against Women: Combined sixth and seventh periodic
report of States parties – Jamaica.
CEDAW (2010). 52nd Session: Concluding observations of the Committee on the Elimination of
Discrimination against Women – Jamaica.
Inter-American Commission of Women (2010). 35th Assembly of Delegates. National Report: Jamaica.
Moncrieffe, Joy (2010). Reducing Gender-Based Violence in Jamaica: Increasing Awareness, Enhancing
Access to Protection, Strengthening Responses.
Sookram, Sandra & Patrick Watson (n.d.). The Informal sector and gender in the Caribbean: the case of
Trinidad and Tobago. Available from http://sta.uwi.edu/salises/pubs/workingpapers/18.pdf.
Tafari-Ama, Imani & Shirley A. Campbell (2011). Final Report: Gender Barriers to Justice Baseline
Study in Granville, May pen, Spanish Town and Tower Hill – MOJ/UNDP. The Bridge Between Court
And Community.
33
UNODC and LAC World Bank (2007). Crime, Violence, and Development: Trends, Costs, and Policy
Options in the Caribbean.
Websites
UNAIDS Global Report Fact Sheet; Caribbean. Available from
http://www.unaids.org/documents/20101123_FS_carib_em_en.pdf
UNiTE to End Violence against Women – Caribbean United Consensus. Available from
http://www.eclac.cl/mujer/noticias/noticias/5/41145/CaribbeanUNITEConsensus.pdf
34
Appendix IV
Stakeholders Consulted
Organization
Role/Title
Method of Consultation
UN-Women
UN-Women Sub Regional Office Barbados
Acting Officer in Charge
Individual and Group interviews
Gender Equality Coordination
Specialist
Programme Specialist
Communications Specialist
Former Regional Program
Director
Skype interview
Bureau of Women’s Affairs
Executive Director
Project Officer
Group interview
Dispute Resolution Foundation
CEO
Individual Interview
Institute for Gender and Development
Studies
Senior Lecturer, Head
Jamaica Household Worker Association
President
Jamaica Network of Women Rural
Producers
Director
Telephone Interview
Ministry of Finance
Director of International
Organizations
Gender Focal Point
Group interview
Ministry of Justice
Minister of Justice
Permanent Secretary
Consultant (former head of legal
reforms)
Two staff members
Group interview
Partnership for Peace Project
Consultant/Expert
Skype Interview
Prime Minister’s Office
Chief Technical Director
Sistren Theatre Collective
Director
Gender Specialist
Programme officer
Group interview
UNFPA
Director Sub-Regional Office
Gender Advisor
Group interview
UNICEF
Representative
Deputy Representative
Group interview
Women Inc.
President
Member
Group interview
Women’s Media Watch
Two team members
Group interview
Women’s Resource and Outreach Centre
Executive Director
Gender Specialist
Group interview
Partners/Stakeholders in Jamaica
35
Appendix V Sample Interview Protocol
(for NGO/CSO Partners)
Please note that the following, as well as all other interview protocols used during the Jamaica site visit
have subsequently been revised to reflect lessons learned from the pilot visit.
Introduction: Universalia has been engaged to undertake an evaluation of UN-Women’s work on Ending
Violence Against Women and Girls (EVAWG). This thematic evaluation includes studies of EVAWG
work in seven countries and this interview will contribute to your country case study. Thank you for
agreeing to this interview. This document is intended to be a guide for our discussion, which I expect will
take roughly one hour. All interviews are confidential, in that information you provide will only be
reported in aggregate, summarizing all key informant interviews without attribution to the sources.
1. Your Role
1.1 Can you briefly describe your role in EVAWG work? What is the nature of the relationship between
your organization and UN-Women?
2. Context & Relevance
1.2 Since 2008, what socio economic or political factors in Jamaica have impacted work on EVAWG?
1.3 Have there been any additional or emerging issues or factors in the last year, which will implicate
future EVAWG work going forward?
1.4 How have the needs and priorities of Jamaica’s Government and population been considered in the
EVAWG interventions?
1.5 To what extent does the attached Logic Model accurately reflect EVAWG work in Jamaica? Where is
it not a good reflection of EVAWG work in Jamaica?
3. Activities and Results
1.6 What approaches and innovative interventions has your organization worked on to address EVAWG?
(i.e. interventions focused on prevention? boys & men? other?)
1.7 How much of your organization’s work on EVAWG is connected to or funded by UN-Women?
1.8 At an operational level, can you comment on the results below; the nature and extent of achievement
in Jamaica over the last four years?
Immediate Outcomes
Jamaica
1. Legislation and policies are adopted and implemented to respond to
and prevent violence against women and girls
2. Women and gender advocates influence policies, actions and budgets
to address VAWG
3. National and local level authorities enhance number and/or quality of
critical services to VAWG survivors
4. Awareness of, and public support for Ending VAWG from decision
makers, leaders, and community members
5. Other results?
1.9 Other than UN-Women, do you work with other UN Agencies? If so who and on what interventions?
36
1.10 How would you compare the relationship with UN-Women to that with other UN Agencies and
why?
1.11 Does UN-Women provide your Organization with useful data, information and knowledge on
EVAWG work? Can you provide an example?
1.12 Do you (or your Organization) participate in any networks domestically, regionally or globally that
informs EVAWG work? Please explain which and how?
1.13 How would you assess Jamaica’s progress in the following from 2008 –present and why? (Possible
rating; if 2008 = 0 how is 2011 on a scale of 1-5?)
Intermediate Outcomes
Jamaica
1. Government and service providers are accountable to women
and girls for prevention, protection and response to VAWG
2. Women and girls who are survivors of VAWG demand, and have
increased access to critical services, including justice
1.14 How has the issue of sustainability been addressed or considered in interventions in Jamaica?
1.15 To what extent and what evidence is there that Jamaica is moving towards a state where “women and
girls are free from all forms of gender based violence and from the threat of such violence?”
4. Strengths & Weaknesses
1.16 Looking back over the last 4 years, can you identify any specific strengths in your partnership with
UN-Women (or predecessor entities) that should be capitalized on in future?
1.17 In that same time frame, are there weaknesses to the EVAWG interventions/program in Jamaica that
require attention going forward?
5. Strategic Positioning
1.18 What are the most significant opportunities and barriers to successful EVAWG work in Jamaica?
1.19 Going forward, what is critical to success in Jamaica’s efforts to EVAWG?
1.19 Do you have any suggestions related to the strategic positioning of UN-Women’s EVAWG work in
your country, relative to:

UN-Women having a clearly defined approach and the capacity to operationalize its EVAWG
mandate

UN-Women’s partners (in particular other UN Agencies) have a shared understanding of and are
in agreement with UN-Women’s leadership in and approach to EVAWG,

Other?
Thank you for your contribution to the evaluation.
37
Appendix VI
Brief Project Descriptions
UNIFEM and UN-Women projects
1. Strengthening State Accountability and Community Action Project (SSA) for Ending GenderBased Violence (GBV) in the Caribbean
The project was funded by UNIFEM and supported by the Association of Caribbean Commissioners of
Police (ACCP) and implemented by the Bureau of Women's Affairs (BWA) in Jamaica. The budget for
this intervention, which took place from January 2009 to November 2011, was around $191,000.
According to the December 2011 project progress report, the objectives of the project were:

Development of multisectoral strategic plans to address the protection, prevention and
punishment of sexual and GBV;

Building of technical competencies of the justice and security sectors and the non-governmental
sector to respond effectively to GBV;

Development of a monitoring framework to ensure state accountability through civil society-state
partnerships; and

Promotion of a gender-sensitive, youth focused social communications strategy on GBV.
The expected outputs of the project were:

A National Strategic Action Plan for GBV;

The Partners for Peace programme – A national framework for batterer intervention established;

Baseline report on the justice and security sectors;

Development of complaints and response protocols;

Culturally and age appropriate advocacy materials on GBV targeting school youths, community
spaces and faith-based institutions;

Strengthen technical competencies of police and prosecutors;

Police internship programme;

Trained community-based young women and men in advocacy and peer interventions; and

Trained network of male advocates – Champions for Change.
2. Partnership for Peace Programme (PfP)
Starting in 2004, UNIFEM supported efforts to develop a standardised approach to BIPs in the Caribbean.
The work built on related efforts of the Economic Commission for Latin America and the Caribbean
(ECLAC) and the Canadian International Development Agency (CIDA) who had agreed that BIPs needed
to be guided by some basic principles which included prioritising the safety of the abused and the
acknowledgement of accountability and responsibility by the perpetrator.
UNIFEM convened a regional expert group meeting in 2004, and in 2005 commissioned the Grenada
Legal Aid and Counselling Clinic to implement a pilot BIP in Grenada. UNIFEM, supported by a project
expert group embarked on developing a regional training strategy for Caribbean countries, and workshops
to train facilitators were initially held in Grenada, Saint Lucia, and Trinidad & Tobago. In 2008, UNIFEM
contracted the Jamaican NGO Dispute Resolution Foundation to conduct three workshops as part of this
process.
38
Participants of the first two trainings included staff from the Department of Correctional Services and
representatives from the Dispute Resolution Foundation. A third separate training was held for Jamaican
magistrates and judges. The total budget for the initial two workshops was $26,000.
Following these workshops, no further (documented) programme activities were conducted in relation to
the PfP until October 2011 when the programme was (re)launched by the Department of Correctional
Services, and another workshop for training facilitators was conducted with support from BWA and funds
provided by the SSA project.
UN Trust Fund projects
1. Tek It To Dem And Rise Up Wi Community (2009-2012)
The project was initiated as part of the UN Trust Fund grant cycle 13 (year 2008) for a budget of
$537,598. It was implemented by the Sistren Theatre Collective - in partnership with the Women’s Media
Watch (WMW), the Dispute Resolution Foundation, Creative Production and Training Centre, and the
Department of Community Health and Psychiatry in University Hospital of the West Indies. According to
the 2008 project document, the main goals and objectives of the project were to:

Build personal and social awareness of the problem of violence against women and girls;

Promote behaviour change through public education and social analysis;

Engage men, who are perpetrators and potential perpetrators, and victims of violence in
interactive discussions about the problems of GBV; and

Engage young men (between 15 and 25 years of age) in a training programme to build selfesteem and life skills in order to arrest and prevent women and girls from being exposed to the
prevailing typologies of violence that are now treated as norms of social interaction.
As per the project progress report (January-June 2011), the expected outcomes of the project are to:
1) Increase awareness of the target communities of the issues involved in violence against women
and girls within three years;
2) Reduce risk behaviours for VAW among 860 boys and men in the target communities by 2011;
3) Increase the number of victims/survivors by 1275 with coping skills in the target communities
within three years; and
4) Raise awareness of the negative cultural practise of the initiation of girls into early sexual
activities.
2. Reducing GBV in Jamaica: Increasing awareness - strengthening responses (2008-2010)
The project was headed by BWA in collaboration with WMW with a budget of $70,874. It aimed to
increase awareness, enhance access to protection and strengthen responses to VAW, with a focus on
sexual harassment. The first component was carried out by BWA and focused on training judges and
magistrates on international conventions and treaties. The second component, carried out by WMW
trained key target groups on relevant national policies and laws, and United Nations conventions
addressing VAW. Through partnerships with BWA, Friedrich Ebert Stiftung, the Caribbean Institute for
Media and Communications, Roots FM, KSAAF, Jamaica Network of Rural Women Producers and the
National Association of Hairdressers and Cosmetologists, WMW aimed for the following outputs:

A cadre of media practitioners committed to promoting gender aware coverage of GBV and
related existing laws;

A body of community leaders with knowledge of factors surrounding domestic and sexual
violence and of the laws that exist to protect citizens and how to access protections under the
laws;
39

Instances of youth challenging stereotypes and analyzing media messages;

Constructive public debate and action on women’s rights, GBV and women’s equity; and

Reaching a diverse range of persons through the dissemination of public education materials.
3. Enhancing public access to protection under laws on domestic and sexual violence, (2008-2010)
The project was implemented by WMW with a budget of $103,936. The project focused on the
sensitization and training of target groups on prevention of sexual harassment and GBV, especially
domestic violence. The project objectives according to the final report (March 2010) were to:

Increase the capacity of key target groups to effectively respond to violations of gender equality
and women’s rights;

Raise public awareness and reduce public tolerance of GBV by using effective mass
communication tools;

Create and distribute training and information material on GBV to be used in training of target
groups and for general information; and

Share knowledge and strengthen partnerships between BWA, WMW and other government
agencies and CSOs.
40
Appendix VII
48
P r e l i m i n a r y R e s u l t s M o d e l 48
As outlined in the evaluation Inception Report.
41
Country Case Study: Brazil
i
Acronyms
AECID
Spanish Agency for International Development Cooperation
AGENDE
Ações em Gênero e Cidadania
CDD
Catolicas pelo direito de decidir
CEDAW
Committee on the Elimination of Discrimination against Women
CSO
Civil Society Organisation
DEAMs
Delegacias Especiais de Atendimento as Mulheres
ECLAC
Economic Commission for Latin-America and the Caribbean
EVAW
LAC
M&E
Monitoring and Evaluation
NGO
Non-governmental Organizations
SPM
Special Secretariat for Policies for Women
UN Trust Fund
United Nations Trust Fund in Support of Actions to Eliminate Violence against
Women
UN-Habitat
United Nations Human Settlements Programme
UN-Women
United Nations Entity for Gender Equality and the Empowerment of Women
UNAIDS
Joint United Nations Programme on HIV/AIDS
UNCT
UNDAF
UNDP
United Nations Development Programme
UNFPA
UNIC
United Nations Information Centre
UNICEF
UNIFEM
UNODC
United Nations Office on Drugs and Crime
VAW
i
Contents
1.
2.
3.
4.
Introduction
1
Context 3
2.1
2.2
2.3
Regional 3
National - Brazil 4
6
Profile of UNIFEM-supported VAW programming in Brazil (2008- 2011)
3.1
3.2
3.3
3.4
Overview 7
VAW programming in Brazil
7
Inter-agency coordination and collaboration 10
Findings on strategic evaluation questions
7
7
11
4.1
Overview 11
4.2
Contributions to results and related lessons learned 11
4.2.1
General
11
4.2.2
Relevance 11
4.2.3
UN-Women’s operational mandate 12
4.2.4
UN-Women’s intergovernmental mandate 16
4.2.5
UN-Women’s coordination mandate
16
4.2.6
17
4.3
Organizational strengths and weaknesses in managing EVAW: Lessons learned
17
4.4
18
5.
Recommendations
19
6.
20
Exhibits
Exhibit 3.1. UN-Women and UNIFEM support to EVAW in Brazil 2008-2011
Exhibit 6.1. Implications for the overall evaluation
8
20
Appendices
23
Appendix II Case Study Methodology and Evaluation Matrix
25
iii
Appendices
37
41
33
iv
1.
Introduction
Background
The country case study constitutes one element of the broader Thematic Evaluation of the Contribution of
Violence Against Women and Expand Access to Services.
The objectives of the overarching evaluation were to i) capture key results and lessons learned from the
various contributions of UN-Women’s four predecessor entities49 between 2008 and 2011 which UNWomen has taken forward, relating to supporting countries to prevent violence against women and girls
and expand access to related services, and ii) analyze how well UN-Women is strategically positioned to
implement its mandate of normative, operational and coordination work in the area of violence against
women (VAW).50
This case study summarizes key observations and findings on the work of both UN-Women and the United
Nations Development Fund for Women’s (UNIFEM), its predecessor entity, on preventing VAW and
expanding access to services in Brazil. The draft study will be revised based on feedback from UN-Women
and the Brazil National reference group (see Appendix I).
Methodology
Based on a pilot site visit to Jamaica, and following feedback from the UN-Women Evaluation Office, the
evaluation team developed a case study methodology outlining the purpose and approach to the case
The case study evaluation matrix (Appendix II) outlined the three strategic questions upon which data
collection for the country case studies was structured. Key data sources included documents (see Appendix
III for a list of reviewed documents), in-person interviews conducted during the evaluation team mission to
Brazil, 3-7 December 2012, and telephone interviews. The evaluation team conducted interviews with 18
stakeholders for this case study, as shown in Appendix IV. Appendix V presents a sample interview
protocol; protocols for other stakeholder groups were similar, but tailored to the respective group.
Appendix VI presents a description of the projects reviewed for the case study.
To guide the overall evaluation, the evaluation team, in consultation with the evaluation reference group at
UN-Women headquarters in New York, developed a more detailed corporate theory of change on its work
on EVAW (Appendix II). This results logic was used in the design of interview protocols and was the basis
of efforts to understand the rationale for the types of initiatives being implemented in each country and the
results they sought to achieve. The results logic also informed the structure of evaluation findings in section
4 below.
Limitations
The timing of the field visit presented the main challenges for the evaluation team in conducting
interviews. December was a busy end-of-year period for stakeholders, including national counterparts and
49
UN-Women’s predecessor entities are: the Division of the Advancement of Women (DAW), the United Nations
International Research and Training Institute for the Advancement of Women (INSTRAW), the United Nations
Development Fund for Women (UNIFEM), and the Office of the Special Advisor on Gender Issues and the
Advancement of Women (OSAGI).
50
More information on evaluation objectives and methodology is available in the evaluation Inception Report
(November 2012).
1
civil society representatives, making many unavailable for interviews. In addition, stakeholders from the
Special Secretariat for Policies for Women were unavailable as Brazil was hosting of a meeting of
Ministers and High-Level Authorities for Women for Mercosur and the Brazil subregional office was
hosting a meeting concerning the reorganization of UN-Women’s regional architecture making it difficult
to schedule meetings with local staff.
To minimise the impact of these challenges, the national consultant remained available from 10-12
December 2012 to conduct two additional stakeholder interviews. The respondents represent most of the
key UN-Women government and civil society partners in the thematic area of ending violence against
women and girls. Nonetheless, the limited number of respondents negatively impacted the strength of the
data.
Report structure
This case study is structured in five sections. Section 2 provides a summary of the contexts that provided
the backdrop for UN-Women’s predecessor entities’ work on violence against women and girls during the
period 2008-2011. Section 3 presents a profile of UN-Women and UNIFEM managed or supported
programming from 2008-2011. Section 4 provides the evaluation’s findings on the three strategic
evaluation questions and finally, some suggestions and recommendations for UN-Women that emerged
from the Brazil case study are presented in Section 5.
2
2.
2.1
Context
Regional
The Southern Cone region traditionally includes Argentina, Chile, Paraguay, Uruguay and Southern Brazil.
UN-Women includes Brazil as a whole in its regional strategy for the Southern Cone. All countries in the
Southern Cone are classified as upper middle income countries, with the exception of Paraguay, a lowermiddle-income country.51 In the region, the population living below the national poverty line ranges from
5.9 per cent in Chile to 35.1 per cent in Paraguay.52 The region has experienced economic growth within
the past decade and a combination of favorable economic conditions and public policies has resulted in a
notable reduction in income inequality over the last 15 years. Nonetheless, income inequality in the region
remains significantly high when compared to non-Latin America and the Caribbean (LAC) countries.53
Also regional/subregional numbers mask the inequalities experienced within individual countries.
Despite economic advances in the Southern Cone, gender equality and discriminations remain a challenge.
Although female secondary education completion rate is at parity with male completion rates for all five
countries, the participation of women in the formal labour market remains significantly lower than that of
their male counterparts. Female political participation in the region remains significantly low, with less
than 15 per cent of parliamentary seats occupied by women Argentina is the exception where women
occupy 38 per cent of the seats.54
In 2008, UN-Women reported a 50 per cent rate of violence against women and girls.55 More recent
research in Brazil indicates that 66 per cent of women in Brazil believe there has been an increase in
gender-based domestic and family violence, although the majority (60 per cent) also recognizes that there
are more protective measures in place after the approval of the Maria da Penha Law.56 Governments in the
sub-region, with the exception of Chile, have acknowledged this issue and have made substantial efforts to
eliminate VAW, notably by ratifying all major gender-related legal instruments (including the Convention
on the Elimination of All Forms of Discrimination Against Women [CEDAW] and its optional protocol, as
well as the Belem do Para Convention). Progress has also been made toward the Beijing Platform for
Action, as illustrated in government efforts to define and implement national plans and equal
opportunities.57 Nevertheless, despite the adopted international commitments and national legislation on
51
World Bank list of economies 2012, available from
http://siteresources.worldbank.org/DATASTATISTICS/Resources/CLASS.XLS. Accessed 27 November 2012.
52
United Nations Development Programme (UNDP). “Multidimensional Poverty Index” Statistical Annexes, Table 5
in UNDP Human Development Report 2011, 2011.
53
World Bank Latin America and the Caribbean. A Break with History: Fifteen Years of Inequality Reduction in Latin
America, p.1. 2011.
54
UNDP. “Gender Inequality Index and related indicators,” statistical annexes, Table 4, UNDP Human Development
Report 2011, 2011.
55
UNIFEM. Brazil and Southern Cone Countries: Sub-Regional Strategic Plan 2008-2009, p.9. New York, 2008. See
also ECLAC, Review of the Implementation of the Beijing Declaration and Platform for Action and the Outcome of
the Twenty-Third Special Session of the General Assembly in Latin American and Caribbean Countries, LC/L.3175,
2009.
56
Senado Federal Brasil, Portal de Noticias, available from
http://www.senado.gov.br/noticias/datasenado/release_pesquisa.asp?p=32.
57
Ibid.
3
domestic violence, denunciation of gender-related crimes and the full application of existing laws remain a
challenge.58
2.2
National - Brazil
Brazil is the seventh largest economy in the world with a gross domestic product (GDP) of $2.48 trillion
and it has significantly increased its presence on global markets in recent years. Over the past decade,
Brazil has greatly improved its macro-economic stability and significantly reduced its foreign debt. After
strong economic growth in 2007, Brazil was hit by the 2008 financial crisis but was the first ‘emerging
economy’ to begin recovery. Recent data from the Brazilian Institute for Geography and Statistics shows a
consistent reduction in the Gini Coefficient in the past years, from 0.56 in 2004 to 0.51 in 2011.59 These
statistics reflect aggregate data, thus it is probable that economic inequality among vulnerable populations
remains an important issue.
In addition, a study conducted by the Economic Commission for Latin-America and the Caribbean
(ECLAC) reveals that the unemployment rate is systematically higher by approximately 4 per cent among
female workers to male workers.60 Furthermore, in its concluding observations to the seventh periodic
report submitted in 2012 by Brazil to the CEDAW, the Committee expressed deep concerns over a wage
gap that persists between men and women and which can fluctuate between 17 and 40 per cent depending
on the race, ethnicity and education of the woman.61 With regard to gender and political participation in
Brazil, although the recently-elected President Dilma Rousseff is a woman, the percentage of female
politicians in parliament is the lowest of all Southern Cone countries, with only 9.6 per cent of seats
currently occupied by women.62
VAW in Brazil
Up to 34 per cent of women in Brazil have reported to have been victims of physical violence at some point
in their lives.63 In 2011, the Ministry of Health recorded 70,270 cases of assistance to women victims of
violence, of which 13,000 were victims of sexual violence. There are some reports that indicate that
femicide rates in Brazil have increased at an alarming pace during the past three decades and reached 4.6
deaths per thousand women in 2010, ranking Brazil as 7th worldwide.64
The prevention and elimination of violence against women and girls in Brazil is framed in the context of
the human rights struggles and mobilisation of CSOs that emerged from the country’s democratization
processes in the 1970s and early 1980s. This process of democratization has yielded a public policy context
that is strongly oriented towards addressing the realisation of rights, both individual and collective, as
evidenced in the creation of a variety of instruments to address the effects of differences based on gender,
race and age (among others) in accessing public policies necessary for the realization of rights. Hence, a
58
United Nations Office of Drugs and Crime (UNODC) and UN-Women, Informe Regional sobre los Mecanismos de
Respuesta a la Violencia contra la Mujer en los países de Cono Sur, p.1, 2011.
59
Instituto Brasileira de Geografia e Estatística, Síntese de Indicadores Sociais: Uma Análise das Condições de Vida
da População Brasileira 2012, chapter on and life patterns and income distribution, p. 161, 2012.
60
ECLAC, The Economic and Financial Crisis. Its Impact on Poverty, Work and Women's Time, 2012,.
61
CEDAW, Concluding observations of the Committee on the Elimination of Discrimination against Women: Brazil,
CEDAW/C/BRA/CO/7, p. 7, 2012.
62
Op. cit. 6
63
Secretaria Especial de Políticas para as Mulheres, Enfrentamento à violência contra a mulher, p.23,, 2007.
64
Centro Brasileiro de Estudos Latino-Americanos, Mapa da Violência 2012 – Atualização: Homicidio de Mulheres
no Brasil, 2012.
4
wide-ranging agenda of government initiatives to promote human rights has been put in place, including
the promotion of gender equality and women’s rights.
As a result, the operationalization of Brazil’s international commitments in terms of women’s rights has
accelerated since the return of democracy. Indeed, while Brazil ratified CEDAW in 1984, it was not until
1988 that constitutional provisions were included to guarantee formal gender equality, and not until 2002
that Brazil approved CEDAW nationally. In that same year, it ratified the Optional Protocol to the
CEDAW. It should be noted also that, in 1995, Brazil ratified the Inter-American Convention on the
Prevention, Punishment and Eradication of Violence against Women (Convention of Bélem do Pará, 1994).
The national legal and policy
framework for addressing VAW is
widely considered to be relatively
strong, and mostly arose in the
2000s, in the aftermath of the
democratization process. Relevant
documents are outlined in the
sidebar.
Relevant national laws/policies
• Law No. 10.224 to Modify Decree No. 2.848 of 7 December 1940
(on sexual harassment) (2001)
• Establishment of Law No. 10.886/2004 specifies domestic violence
as a crime under Article 129 the Penal Code (2004)
• Law No. 10.886/2004 specifies domestic violence as a crime under
Article 129 the Penal Code (2004)
During the past decade, the
• Law No. 11.340 creating domestic and family violence courts
Government of Brazil has adopted
(2006)
several policies aimed at addressing
• National Plan to Confront Violence Against Women (2006-2007)
VAW. In 2003, Brazil adopted a
National Policy for Fighting
• National Policy to Confront Violence Against Women (2007)
Violence against Women. In 2006, it
• Law 11340 of 7 August 2006 (The “Maria da Penha Law”) (2006)
enacted the Maria da Penha Law,
• National Pact to Combat Violence Against Women (2007)
legislation specifically aimed at
tackling domestic VAW. The Maria
da Penha Law is recognized as one of the three most advanced in the region.65 In 2007, the government
adopted the National Pact to Fight Violence against Women.
Respondents (civil society, United Nations entity staff) to this study note that while the legislation is
considered to be very progressive, there are many challenges in the concrete operationalization and
implementation of the legal and policy framework. Most respondents indicated that the laws ‘have not
stuck’ (nao pegam) or ‘have stayed on paper’ (ficam no papel), due to a combination of capacity
constraints (including financial and human) and limited awareness of the content of the laws among the
judiciary and the police. In fact, in its concluding observations to Brazil’s seventh periodic report to the
CEDAW, the Committee expressed concerns about compliance with the Maria da Penha Law, primarily
because of widespread resistance to the application of the law from law enforcement officers and because
of lack of expertise within the judiciary sector on domestic and family violence.66 While the Committee
acknowledged the comprehensiveness of the measures in the National Pact to Combat Violence Against
Women, it also noted that implementation “might be at stake due to the lack of adequate capacity and
financial resources in the areas of education, health and social assistance.”67
Brazil’s institutional framework for addressing VAW was also put in place in the mid-2000s. Its most
important element is the Special Secretariat for Policies for Women (SPM), created in 2003 and directly
65
ECLAC, Review of the Implementation of the Beijing Declaration and Platform for Action and the Outcome of the
Twenty-Third Special Session of the General Assembly in Latin American and Caribbean Countries, LC/L.3175, p.
10, 2009.
66
CEDAW, Concluding Observations of the Committee on the Elimination of Discrimination against Women,
CEDAW/C/BRA/CO/7, p.4, 23 March 2012.
67
Ibid. p.4.
5
linked to the Presidency. SPM oversees and leads the Service Network for Women in Situations of
Violence (Rede de Atendimento as Mulheres em Situacao de Violencia), created in 2005. The network is
comprised of police stations specialising in services for women (Delegacias Especiais de Atendimento as
Mulheres –DEAMs), referral centres for services for women (Centros de Referência de Atendimento à
Mulher), shelters for women in violent situations (Casas-Abrigo), referral centres for social assistance
(Centros de Referência da Assistência Social -CRAS), and special services provided by public defenders
and health services.
Despite these initiatives, stakeholders identified access to services as a remaining challenge, as they are
generally limited to the metropolitan areas of the country’s biggest cities (Brasilia, Rio de Janeiro and São
Paulo). Similarly, stakeholders identified challenges in coordination between federal authority and statelevel implementation of services, such as with the Service Network. The Service Network is under the
authority of the federal government, whereas services should be established at the state or municipal-levels.
Sub-national entities have encountered challenges in supporting the network’s functions.
Brazil’s generally vibrant civil society has given rise to several organizations involved in advocacy and the
provision of services and support for victims of sexual and gender-based violence. These organizations are
generally well established and operate to a large extent within well-articulated networks. However, the
majority of these organizations face important challenges in securing adequate funding, and therefore many
operate only on a regional or local basis.
2.3
U n i t e d N a t i o n s , U N - W o m e n a n d U N I F E M 68
United Nations context
In the Southern Cone, United Nations entities have a presence in every country of the sub-region. The
United Nations has had a presence in Brazil since 1947 when it established the United Nations Information
Centre (UNIC) in Rio de Janeiro. In 1950, the United Nations Children’s Fund (UNICEF) and the
International Labour Organization (ILO) started developing their work in the country. Today, programmes
and activities of the United Nations are coordinated by the United Nations country team (UNCT), which is
composed of 18 entities including specialized agencies, funds, programmes and regional commissions.69
Support varies from one United Nations entity to another, as each entity works according to its own
mandate and acts in specific areas. However, these entities work together and develop their projects in
collaboration with the Brazilian government at the country (federal, state and municipal-levels), and with
Brazilian CSOs, non-governmental organizations (NGOs) and the private sector.
UN-Women and UNIFEM context
During the period under review, UN-Women and UNIFEM work in Brazil and the Southern Cone was led
by the subregional office in Brasilia. The subregional office was created in 1992 and covered five countries
(Brazil, Argentina, Chile, Paraguay and Uruguay). It worked closely with national governments, women’s
organizations, and the UNCT to coordinate and align with the national priorities and the United Nations
Development Assistance Frameworks (UNDAFs).
Under the current process of restructuring UN-Women’s regional architecture, the Brazil office will lose its
status as a sub-regional office, and will instead be transformed into country office. As a result, the office in
Brasilia will be able to focus its human and financial resources on Brazil alone, rather than dividing its
attention among five different countries. At the same time, the transformation will have negative
68
The case study will refer to UNIFEM for the period 2008-2010, UN-Women for the period 2011 onwards and UNWomen and UNIFEM for the entire period under review.
69
Available from http://unic.un.org/imucms/rio-de-janeiro/64/160/onu-no-brasil.aspx.
6
implications for the Brazil office’s staffing and budget, in terms of a reduction in personnel and core
resources.
p r ogr a m mi ng i n Br a zi l (2 0 0 8 - 2 0 11 )
3.
3.1
Overview
This section provides an overview of the types and foci of work on VAW during the period 2008-2011 led
or supported by UNIFEM in the LAC region and the Southern Cone sub-region. This includes activities
funded and managed by UN-Women and UNIFEM, as well as projects funded by the United Nations Trust
Fund in Support of Actions to Eliminate Violence against Women (UN Trust Fund) which were
administratively supported by UNIFEM (and, since 2011, by UN-Women).
3.2
Violence against women and girls programming was guided by the regional strategic plan for the Latin
America and Caribbean region (2008-2011). The strategic plan highlighted three programming areas
related to violence against women and girls:

servants, indigenous leaders and teachers, and CSOs.

the United Nations system and other stakeholders; undertaking preventive activities to involve
men, boys, adolescents and indigenous peoples including working with communicational
campaigns to prevent VAW targeting young urban males; and leading the Task Force of United
Nations partners in LAC in their efforts to develop a regional strategy to support the SecretaryGeneral’s UNiTE to End Violence against Women campaign.

Safe Cities: Expanding implementation of this programme to other cities in the LAC region to
strengthen women’s citizenship rights in order to reduce public and private gender-based violence,
and increase women’s safety and security.
VAW programming in Brazil was also guided by the Southern Cone countries sub-regional strategic plan
(2008-2009) which aimed to prioritize the implementation and monitoring of legal frameworks to raise
awareness, prevent and combat all kinds of VAW and protect the rights of women. Brazil is one of the
priority countries in the region due to its high percentage of indigenous and afro-descendent populations; its
ability to offer subregional leadership and South-South cooperation; because of its strong feminist and
black women’s movement; and its social, racial, ethnic and territorial diversity.
3.3
VAW programming in Brazil
UNIFEM supported VAW programming in Brazil through direct project support, core funding, and through
the UN Trust Fund (as shown in Exhibit 3.1). This has been a key area of programming in Brazil with
dedicated staff which, in 2013, comprised a coordinator and an assistant.
In line with the subregional strategy, the focus of the office’s VAW programming was to disseminate the
Maria da Penha Law and implement the Safe Cities regional programme. The primary funding partners in
these efforts were the Avon Institute and the Spanish Agency for International Development Cooperation
(AECID). Work in Brazil has focused on raising the awareness of the general public and key target groups
on the issue of gender-based violence, the legal framework to prevent and combat violence, the legal
7
resources and services available to women and, to a lesser extent, on supporting institutional capacity to
provide services.
Exhibit 3.1. UN-Women and UNIFEM support to EVAW in Brazil 2008-2011
UN-Women and UNIFEM Project Support
Education for Women’s Rights: Dissemination of Maria da Penha Law
UN-Women and UNIFEM funding
US $32,786.89 in kind
Safe Cities for All
 Project: “Escalating the debate and feminist actions in the fight against
US $12,000
violence against women in cities” (2009)
 Project “Cities without VAW in informal labor” (2011)
US $35,000
UN Trust Fund
Gender violence: action and training for policy change and care services
US $120,000 (in Argentina and
Brazil combined)
Engaging Men to End Gender-Based Violence: a Multi-Country Intervention
and Impact Evaluation Study –
US $309,268 (in Brazil only)
Core funding support
UNIFEM contributions to staff costs and projects
US $ 738, 800
Based on data in the documents reviewed, the projects listed above were implemented by UNIFEM in
collaboration with other governmental and non-governmental entities in Brazil. Most of the funding was
channelled through the project Dissemination of Maria da Penha Act, with an important investment from
AVON (US$819, 672) from June 2009 until December 2013 and through the Safe Cities for All initiative,
which invested US$47,000 in Brazil.
The Dissemination of the Maria da
Penha Law was a national project
funded by Avon Institute and
implemented by UNIFEM with the
support of CSOs and the SPM. The
project’s purpose was aligned with
the expected outcomes of the
Southern Cone sub-regional strategy
noted above.
Purpose of the Project Dissemination of Maria da Penha Law
“to contribute to the implementation of the Maria da Penha Act and
the reduction of domestic and family violence against women in
Brazil by enhancing sensitivity and raising awareness to the issue,
while disseminating information, and mobilizing two segments of
society that are crucial in preventing and confronting such violence,
namely: young people and qualified professionals (police chiefs,
public defenders, public prosecutors, magistrates and lawyers) that
operate the legal system in Brazil”
The Safe Cities for All initiative was
part of a broader global initiative aiming to contribute to the reduction of public and private forms of VAW
in cities, which was also given priority in the sub-regional and regional strategy for LAC. Other funds were
channelled to two programmes as detailed in Appendix VI.
UNIFEM also supported VAW-related work in Brazil (and the subregion) through two staff positions
which focused primarily on EVAW and activities financed through core funds and which are not included
in the project investments noted above. During the period 2008-2011, the Brazil office invested $738,800
in core funds in EVAW.
8
Key activities included:70

Preparing a document about the creation of the Maria da Penha Law, to distribute in the LAC
region.

Creating monitoring mechanisms on the implementation of laws on VAW.

Collecting data on indigenous young women trafficking in the Brazil/Paraguay border.

Leadership training and production of information on VAW in the Amazon.

Raising awareness on EVAW among small business managers, women, administrators and human
resource personnel in Rio de Janeiro.

Raising the awareness of legal professionals on the Maria da Penha Law.

Working with post-conflict favelas in Rio de Janeiro on public safety and prevention of VAW.

Increasing the capacity of mass media to raise awareness on gender equality.

Training of law enforcement agents on the use of national and international instruments to defend
women’s rights and monitor their capacity to provide victims with access to justice.

Training public civil servants on how to incorporate gender into the design, execution and
assessment of programmes and public policies with emphasis on sexual and gender-based violence.

Strengthening women’s organizations and networks to increase their influence in combating VAW,
support their participation in gender-responsive budget processes, and helping them organize
activities, produce knowledge, exchange experiences, and improve internal and external
communications.
UN Trust Fund
Between 2008 and 2011, $1,120,000 was disbursed through two projects funded through the UN Trust
Fund, which were both implemented in Brazil and one or more countries:
1) Gender violence: action and training for policy change and care services in Argentina and Brazil,
with perspectives for the Southern Cone (2008-2009) with an initial grant of $120,00071 implemented by
the organization Católicas pelo Direito de Decidir (Female Catholics for the Right to Choose). 72 The
project aimed to train stakeholders from different sectors, raise awareness about VAW, and track the extent
to which local sub-national laws comply with Belem do Para and CEDAW through training, workshops,
expert group meetings, campaign activities, and promoting national and regional debate around VAW to
hold policymakers accountable.
2) Engaging Men to End Gender-Based Violence: a Multi-Country Intervention and Impact
Evaluation Study (2008-2010): This project was implemented by the Instituto Promundo, working cross
regionally in Brazil, Chile, India and Rwanda. The total project budget was $999,893,73 of which $309,268
70
Brazil and Southern Cone subregional work plans, 2009-2011.
71
UN Trust Fund Active Portfolio Summary August 2012 Database.
72
Information on UN Trust Fund projects in Brazil is available from: http://untfevaw.org/beta/?grantees&country=246&organization=&window=&cycle=&year=&violence=&primary=&secondary
=&strategies=.
73
As reported in the UN Trust Fund Active Portfolio Summary database.
9
was dedicated to activities in Brazil.74 The project aimed to break traditional notions of masculinity and
replacing them with gender-equitable non-violent versions. The project interventions included a
combination of group educational workshops and campaign activities with young and adult men aged
between 15 and 40 years of age and engaged between 2,000 and 3,000 young and adult men.
Appendix VI provides additional information on the projects noted above.
3.4
UN-Women and UNIFEM collaborated on and coordinated the Secretary-General’s UNiTE campaign. In
July 2011, men and women from the Brazilian delegation to the fifth military world games participated in
the campaign. In partnership with United Nations entities in Brazil (including UN-Women), the Brazilian
Peacekeeping Joint Operations Centre and the Ministry of Defense, the games raised awareness and
involved people in preventing VAW. A UNiTE campaign video was shown and several other awarenessraising materials were distributed throughout the event.
Another initiative that demonstrated coordination by UNIFEM was the Safe Cities initiative outlined
above. The initiative began in Latin America in partnership with the United Nations Human Settlements
Programme (UN-Habitat)75 and was coordinated by the NGO, Coalition Women and Habitat Network.
During the period under review UNIFEM staff participated in meetings of the gender and race theme
group, which met every two months. In addition, under the UNDAF for the period 2007-2011 another
important coordination mechanism was the urban crime and violence prevention theme group. Key UNWomen and UNIFEM partners in this thematic area were the Joint United Nations Programme on
HIV/AIDS (UNAIDS), the United Nations Population Fund (UNFPA) and UN-Habitat.
74
Instituto Promundo. Project Engaging Men to End Gender-Based Violence: A Multi-country intervention and
Impact Evaluation Study. 2012. In particular Annex 2.2 Detailed Total Budget.
75
UNIFEM. UNIFEM Annual Report 2009-2010. 2010.
10
Findings on strategic evaluation questions
4.
4.1
Overview
evaluation matrix, namely:
5) For the period 2008-2011, what has been the contribution to results towards ending VAW in
Brazil made by UN-Women’s predecessor entities? What are related lessons learned? (Section
4.2)
learned from its predecessor entities in view of planning, implementing, monitoring, and
evaluating their EVAW related work? (Section 4.3)
The lessons/best practices noted in the sidebars in this chapter reflect the views of consulted stakeholders
and observations made by the evaluation team based on available data. As noted in the limitations section,
these findings are based on a limited number of respondents, which were triangulated with document
review.
4.2
4.2.1 General
This section presents evaluation findings on UN-Women’s contributions to results and lessons learned in
Brazil. Section 4.2.2 presents findings on context and relevance, which cut across the different dimensions
of UN-Women’s mandate. Sections 4.2.3 to 4.2.5 present findings on contributions to key results in the
three dimensions of UN-Women’s mandate (operational, normative, inter-agency coordination) as outlined
in the reconstructed results logic for UN-Women’s corporate work on EVAW.76 Section 4.2.6 outlines a
number of factors likely to affect the sustainability of results achieved to date.
4.2.2 Relevance
Context
Contextual factor
Effects/influences on UN-Women and UNIFEM’s VAW work in Brazil
Strong legal framework
that is not yet fully
implemented
Highlights the relevance of VAW-related work that aims to improve awareness of legal
and policy frameworks, monitor implementation and improve service provider capacities
to meet the requirements of the law.
Vibrant civil
society/women’s
movement that is now
facing funding
challenges
These well-established organizations have been long-time partners of UNIFEM and UNWomen and they are strategic allies for the work on EVAW – giving UN-Women an ability
to interact at different levels of the federalist system. The majority of these organizations
face significant challenges in securing adequate funding and note the relevance of
UNIFEM’s/UN-Women’s small but important financial contributions.
76
See final evaluation Inception Report, Exhibit 3.2.
11
Contextual factor
Effects/influences on UN-Women and UNIFEM’s VAW work in Brazil
Access to services is still
limited for some sectors
of the population
Services for women, such as the DEAMs, are generally limited to the metropolitan areas
of the country’s biggest cities (Brasilia, Rio de Janeiro and São Paulo).
This illustrates the important role played by NGOs/gender advocates with regard to
expansion of services at the state and local areas and the relevance of UN-Women and
UNIFEM work through these partners in order to expand access to services.
Federalism in Brazil and
challenges in
coordinating federal and
state authorities
In order to be an effective EVAW advocate, it is important to work with the federal and
state levels that have different areas of responsibility with regard to EVAW policy and
services. While policies are made at the federal level, the states are the implementers
and service providers.
Given UN-Women and UNIFEM’s limited staff and financial resources, and its location in
Brasilia, the organisation has to have strong NGO/CSO partners that will enable
advocacy work at state and municipal levels as required. This has been the strategy
followed by the subregional office.
Relevance
UNIFEM’s EVAW-related work
was relevant in Brazil in light of the
country’s global and regional
commitments and its strong
legislative framework to support
prevention of VAW. At the same
time the subregional office’s
approach was aligned with the broad
priorities established in the UNIFEM
subregional strategy for the Southern
Cone.
In Brazil, VAW needs to be understood in the context of many other
forms of violence that affect men and women, boys and girls on a
daily basis. In addition, the profound social cleavage of race creates
a situation of particular vulnerability for Afro-descendent women and
girls.
See for example: Centro Brasileiro de Estudos Latino-Americanos.
Mapa da Violência 2012 – Atualização: Homicidio de Mulheres no
Brasil. 2012.
around the key results outlined in the reconstructed corporate results logic as noted in the final evaluation
Inception Report.
Overall, the evaluation found some evidence of VAW-related results achieved during (and prior to) the
period under review in Brazil. However, available data do not always paint a clear picture of what
UNIFEM’s specific contributions have been in each case, or what (implicit) priorities and ‘bigger picture’
goals its VAW-related work was aiming to contribute to. Evaluation data indicate that UNIFEM’s most
notable influence in Brazil has been its support to women’s CSOs to undertake VAW-related awarenessraising activities, and strengthen their capacities to monitor the implementation of relevant laws and
policies.
Short and mid-term results
Supporting and strengthening the implementation of legislation and policies to respond to and
prevent violence against women and girls in Brazil
Although the Maria da Penha Law was in place before the period under review, evaluation respondents
highlighted UNIFEM’s role in adoption of the law through its support to CSOs and in promoting political
dialogue.
12
For the period under review, UNWomen and UNIFEM’s contribution
in this key result area focused on the
implementation of the law and the
development of partner capacities. In
particular, it provided technical
support for training judges on the
content of the law and its application.
Similar training and capacity-building
activities were undertaken for other
service providers. Available
evaluation data did not provide
specific information on results
deriving from these types of
activities.
“Policy and legislation: raising awareness and building capacity for
compliance with international agreement.” (2008-2011 LAC regional
strategic plan)
In Brazil, UN-Women and UNIFEM has focused its support on
CSOs and government partners by providing technical assistance
and training to further the operationalization of the existing Maria da
Penha Law, thus serving to enhance existing strong national
capacities to further the EVAW agenda.
Continuing support and capacity
building for Brazil’s women and
gender advocacy actors to influence
the implementation of policies, actions and budgets to address VAW
Building on partnerships created prior
to the adoption of the Maria da Penha
Law, UN-Women and UNIFEM
provided support to a variety of CSOs
to influence the implementation of
“Policy and Legislation: building capacity of key actors for the
policies, actions and budgets to
address VAW. In the Safe Cities
other civil servants, indigenous leaders and teachers, and Civil
initiative, for example, UN-Women
Society Organizations.” (2008-2011 LAC regional strategic plan)
and UNIFEM provided support for
the development of the women’s movement through educational activities to increase their understanding
of the situation of violence and of the new vulnerabilities that have emerged for women in urban spaces.
UN-Women also provided support to knowledge creation processes and promoting dialogue among diverse
CSOs. In addition, financial support from UN-Women and UNIFEM has enabled organizations such as
SOS Corpo to participate in the processes for monitoring the implementation of the Maria da Penha Law,
as well as of the Service Network. This financial support has been important given the funding limitations
CSOs face in the current context and it has enabled them to play a monitoring role (through education and
training of women to be involved in monitoring the law) that they might otherwise not have been able to
play to the same extent without UN-Women and UNIFEM funding.
Similarly, UNIFEM has worked with organisations such as Catolicas Pelo Direito de Decidir to organise
capacity-building seminars for multipliers to empower women through awareness raising with regards to
the cultural elements that legitimate VAW, so that they can better advocate for the effective
implementation of the existing laws
and policies.
One respondent eloquently summarised a view expressed by the
As noted by respondents from the
majority of respondents, in noting that UNIFEM’s support has
SPM, the contributions of such
significantly contributed to developing “a more qualified and
informed women’s movement, which is better able to formulate
organizations to the participatory
arguments for public policies and keep the issue of VAW on the
planning and monitoring meetings
public agenda.”
within the Observatory for the
Implementation of the Maria da Penha
Law have reflected the increased knowledge and awareness of the CSOs.
13
Supporting the strengthening of
service network for women in
situations of violence in Brazil
“National and local level authorities enhance number and/or quality
There is no evidence collected or
available on the demand for access to
results logic)
services by survivors of VAW. As
reported in the CEDAW report, from
its creation in 2006 until 2009, the
other civil servants [...].” (2008-2011 LAC regional strategic plan).
call centre recorded an increase of
approximately 1,890% in the volume of calls received and aid given.77 Use of the Service Network’s
hotline to request information specifically about the Maria da Penha Law increased steadily from the
adoption of the law until 2009 (with 48,087 calls in 2007, 118,372 in 2008 and 171,714 in 2009), but this
number fell in 2010, when only 82,170 calls were received.78
In order to enhance critical services to VAW survivors, sufficient resources (financial and human) need to
be made available to ensure that both
national and local-level authorities
are supported/targeted.
“Awareness of and public support for Ending VAW from decision
In Brazil, the work of the UNIFEM
makers, leaders, and community members.” (Reconstructed
subregional office has focused mostly
corporate results logic)
on the local and subregional-levels.
“Communication: undertaking preventive activities that involve men,
At the federal district-level,
evaluation respondents indicated that
UNIFEM (and now UN-Women)
regional strategic plan)
supported government initiatives to
raise awareness of services for women available through the Service Network. UN-Women and UNIFEM
also regularly participated in campaigns organized by the Government of Brasilia, and at the time of the
field visit, the VAW programme team was distributing leaflets in the centre of Brasilia to raise awareness
of the law, the Service Network and, in particular, the telephone hotline “ligue 180,” which in many ways
constitutes the backbone of the Service Network.
Recruiting decision makers, leaders and community members to the cause of ending VAW in Brazil
Based on the data available in the documents reviewed, much of UNIFEM and UN-Women’s project
support was channeled through the dissemination of Maria da Penha Law. Evaluation respondents noted
that the Military Games organized in Rio de Janeiro in 2011were one particular success of this project.79
Also in 2011, another mobilization was conducted during a football game of the Brazilian League in which
the players’ jerseys all bore the name of Maria da Penha and which are now being sold online.80 These
efforts were seen as successful dissemination events which complemented the more formal but less visible
seminars and workshops. Building on this successful association, UN-Women is advocating with high-
77
CEDAW, Consideration of reports submitted by States parties under article 18 of the Convention on the Elimination
of All Forms of Discrimination against Women, Seventh Periodic reports of States parties, CEDAW/C/BRA/7,
paragraph 28, p. 14, August 2012.
78
Departamento Intersindical de Estatística e Estudos Socioeconômicos, Anuário das Mulheres Brasileiras, p. 382,
2011.
79
See for example http://www.onu.org.br/atletas-pedem-fim-da-violencia-contra-as-mulheres-durante-os-jogos-rio2011/.
80
Available from Mercado Livre (http://produto.mercadolivre.com.br/MLB-455086346-camisa-corinthians-de-jogomaria-da-penha-5-g-_JM).
14
level authorities to convince FIFA to make ending violence against women and girls a theme associated
with the World Cup to be held in Brazil in 2014.
UNIFEM also supported the work of Instituto Promundo between 2008 and 2010 (Engaging Men to End
Gender-Based Violence: a Multi-Country Intervention and Impact Evaluation Study), which aimed to
involve men in the fight against VAW. Respondents from the subregional office, other United Nations
entities and national partners
commended these efforts but
expressed that more needs to be
done to incorporate men and boys in
efforts to end VAW.
Civil society, UN-Women and other United Nations entity staff were
interviewed for this case study cited UN-Women’s efforts in the area
The Brazil subregional office
of awareness-raising and mobilization of public support as the
participated actively in the
hallmark of the subregional office’s work in Brazil. However, it is
Secretary-General’s UNiTE
unclear the extent to which various events have contributed to a
campaign, known in Brazil as UNAlonger term, sustainable change in societal attitudes and
behaviours.
SE (see section 4.2.4). Evaluation
respondents indicated that the
campaign attracted important personalities, in particular then President Luiz Inácio Lula da Silva, to the
network of men leaders.
Mid- to long-term results
When asked about the larger, more significant changes of VAW in Brazil, the central themes raised by
respondents were the symbolic importance of the Maria da Penha Law and the creation of the SPM. These
two elements were generally cited with pride in having – at least on paper – one of the most progressive
legal and policy architectures with regard to VAW. While these developments predate the period under
review for this evaluation, they do constitute the backdrop against which UN-Women and UNIFEM’s
interventions have taken place.
As remarkable as these achievements are, all respondents expressed some degree of concern that the
significance of the law may remain symbolic, and that implementation may not reach the women it is
intended to support due to the long process of changing societal norms which requires continuing efforts by
all stakeholders.
Transforming societal norms and behaviours while strengthening institutions to
support EVAW
In Brazil, although data are collected on the number of women seeking information from the VAW network
of service providers, there is a significant gap in systematically-collected data on changing norms and
behaviours. For example:
81

The Anuario das Mulheres (Women’s Yearbook) 2011, published by the Departamento
Intersindical de Estatística e Estudos Socioeconômicos (DIEESE)81 contains information on
incidents of violence and also reports on the number of calls received by the Service Network to
either report instances of VAW, to seek services from the Service Network, or to request
information on the legal framework on VAW. It does not, however, include information on societal
norms.

The Mapa da Violencia (map of violence) 2012, published by Brazilian Centre for Latin American
Studies (CEBELA) and the Latin American Faculty of Social Sciences (FLACSO), reports on the
Availble from www.dieese.org.br/anu/anuarioMulheresBrasileiras2011.pdf.
15
incidence of violence resulting in death, with data disaggregated by sex. While this information is
useful, it is too far removed from data on attitudes and norms to be a useful indicator in this regard.
The Brazil subregional office is aware of this data deficiency. While it has not yet made major
contributions to addressing the issue, it is currently studying the possibility of sponsoring a survey of
institutions and households, inspired by an experience from Colombia, to assess the extent to which
domestic violence is tolerated in Brazil. Indeed, respondents indicated that data collection is an important
priority for UN-Women in Brazil as a step forward in developing an evidence base on which to assess
societal transformations.
While work related to the intergovernmental/normative dimension of UN-Women’s mandate is largely
carried out at the global (headquarters) level, the evaluation explored whether and what types of linkages
existed between country-level operational work in Brazil and global-level normative work.
As noted earlier, Brazil is a signatory to key conventions such as CEDAW and Belem do Para and it is very
likely that UNIFEM’s/UN-Women’s work in the country has been and is guided by these global
frameworks. However, evaluation data collected through document review and stakeholder consultations in
Brazil did not provide any specific information on whether and how these linkages have come to bear and
with what effects.82
The Secretary-General’s UNiTE campaign is known in Brazil as UNA-SE pelo fim da violência contra as
mulheres.83 As part of this campaign, UN-Women has coordinated activities with other agencies,
institutions and governments such as “Homems Unidos pelo Fim da Violência contra as Mulheres” (Men
United to End Violence against Women), which is led by Brazil’s SPM, and developed jointly with UNWomen and UNIFEM, UNFPA, Instituto Papai, Instituto Promundo and Ações em Gênero e Cidadania
(AGENDE).
Another VAW initiative coordinated by the United Nations is “Mulheres e Direitos” (Women and Rights),
launched in August 2011. It presented three films about the importance of denouncing VAW and activated
a Centre for Attention to Women, called the Service 180, to raise public awareness of VAW and promote
gender equality and women’s health.84 The campaign is a joint initiative of UNAIDS, UN-Women,
UNFPA, UNICEF, UNIC Rio and the Maria da Penha Institute, with support of the German Backup
Initiative of GIZ.
Within the context of the gender, race and ethnicity working group of the UNCT, UN-Women and other
United Nations entities have increased their emphasis on working more with men as potential allies against
VAW (e.g. linking EVAW and football as noted above).
Most respondents felt that the creation of UN-Women provided legitimacy to its inter-agency coordination
role in matters related to women, and noted, for example, that UN-Women now coordinates the gender,
race and ethnicity working group. Nevertheless, there is a perception that the practical role of inter-agency
82
For example, in at least one of the other country case studies stakeholders emphasized that UN-Women and
UNIFEM had supported them in participating in regional and global events related to meetings of the Commission on
the Status of Women, and/or had assisted them in enhancing their knowledge and use of key conventions such as
CEDAW. While similar efforts may have taken place in Brazil, this was not explicitly highlighted by consulted
stakeholders.
83
Not clear when it was initiated.
84
Available from http://www.unifem.org.br/003/00301009.asp?ttCD_CHAVE=145539.
16
coordination in Brazil has been fulfilled by UNFPA and UNAIDS rather than by UN-Women. Evaluation
respondents noted that UN-Women is not yet very visible in inter-agency working groups, perhaps as a
result of the high levels of turnover in personnel, combined with the small size of the VAW team.
However, respondents also noted that this situation appears to have improved in recent years, due at least in
part to the engagement of the current subregional office representative.
The key factors challenging sustainability of results towards EVAW in Brazil are the lack of follow-up on
specific activities (for example, training events) and lack of data. In other words, there is no formal data
collection on what happens after the activity, thus no way of tracking what has changed and the extent to
which it is sustained.
During the period under review, UNIFEM’s support for strengthening existing VAW-related laws, policies
and response services for women in Brazil has been channelled primarily through various CSOs. Some
consulted stakeholders noted concerns, as they see that relations with CSOs had weakened with the creation
of UN-Women.85 They felt that this might endanger the sustainability of results achieved through previous
collaborations.
UN-Women staff and the small number of government respondents consulted also noted that while
relations between the organizations are strong at the highest levels, the extent of coordination between the
organizations at technical levels in EVAW has varied over the years. Some consulted SPM personnel
acknowledged the success of the relationship between UN-Women and the SPM in general terms, but also
commented on the lack of engagement at the technical level in EVAW, which they attributed primarily to
the high rotation of personnel within UN-Women and UNIFEM. This situation was also acknowledged by
interviewed UN-Women staff, who noted that the very small size of the VAW team and the high-levels of
staff turnover made it difficult to maintain the necessary links with the SPM. UN-Women’s mandate is
increasingly geared towards upstream processes involving the formulation of public policies. Thus,
engaging with government partners at different levels – both political and technical—will be increasingly
important.86
4.3
This section presents evaluation findings on what have been and are organizational strengths and
weaknesses of UN-Women and lessons learned from its predecessor entities in planning, implementing,
monitoring and evaluating EVAW-related work.
Strengths
Consulted stakeholders noted the following strengths of the UN-Women and UNIFEM Brazil office that
had positively influenced their work on EVAW in the country:

The personal commitment and dedication of staff members to the cause of gender equality and
EVAW;

UNIFEM’s long-standing relationships with CSOs. UNIFEM traditionally worked with civil
society partners in EVAW and other themes in Brazil. However, the CSO respondents interviewed
85
Stakeholders did not elaborate whether they attributed this change to the creation of UN-Women, or whether they
saw the timing as a mere coincidence and attributed the change to other factors.
86
It should be noted that, during the field visit, obtaining a meeting with the SPM counterparts was particularly
challenging which could be interpreted as a sign of the relative weakness of the relationship.
17
perceive a shift in emphasis with the transition to UN-Women, with greater emphasis on policy
development and capacity development with government rather than NGOs. Thus, there is some
concern that less attention will be paid to the relationship with CSOs.

UNIFEM’s/UN-Women’s existing links with various levels of government has enabled the
organization to engage in policy-oriented discussions.
Challenges/limitations
Available evaluation data also indicate a number of significant challenges and limitations that have
negatively affected UNIFEM’s/UN-Women’s ability to plan, implement, monitor and evaluate its VAWrelated work in Brazil.
Limited resources spread too thinly: As a sub-regional office, the Brazil office was responsible not only
for Brazil but also for other countries in the sub-region. At the same time, human and financial resources
were limited which, in turn, limited UNIFEM’s ability to focus on any one country or thematic area.
Resource constraints also limited the
number and size of individual
projects/initiatives on VAW in
Brazil that the subregional office
could engage in.
In Brazil, the high turnover of UN-Women and UNIFEM staff also
Frequent staff turnover and
posed challenges to building an effective working relationship on
capacity gaps: Frequent staff
VAW with the federal government and/or providing significant
turnover posed challenges for
amounts of technical support on VAW.
creating sustainable relationships or
establishing any kind of institutional memory. Consulted UN-Women staff and partners also noted that
some staff members had limited monitoring and evaluation (M&E) and effective knowledge management
capacity. In addition, due to budget constraints, the subregional office often relied on the work of junior
staff on temporary employment contracts. This sometimes limited the trust that (more senior and
experienced) government counterparts had in the technical expertise that UN-Women and UNIFEM might
be able to provide them with.
Project, rather than programme based approach: Despite links to the (broad) LAC regional strategic
plan, UNIFEM’s VAW related interventions in Brazil during the period under review did not visibly
contribute to a broader mid- to long-term plan or vision for VAW related changes. Instead, they were a
collection of short-term, micro-projects that not necessarily built upon and complemented each other. As
such, (some) national stakeholders were not sure what technical expertise or specific value-added UNWomen and UNIFEM had been able to provide to VAW-related work.
4.4
Evaluation question 3 examines to what extent UN-Women has strategically positioned itself to add value
in preventing and responding to VAW in global, regional and national contexts.87 UN-Women’s strategic
positioning with regards to VAW in Brazil is strongly influenced by the organizational strengths and
weaknesses outlined in section 4.3, by contextual factors noted in Chapter 2 and other sections of this
report.
87
Due to the nature of the country case study, this section focuses on UN-Women’s positioning in the regional and
national contexts.
18
Contextual factors
Brazil has strong government institutions and a political climate which is receptive to rights claims. As
such, there is the potential for a natural alliance with UN-Women in the pursuit of EVAW. In addition,
longstanding close links with Brazil’s well developed civil society in general, and CSOs working in this
area in particular, mean that UN-Women is well respected and trusted.
Progress in defining and operationalizing UN-Women’s mandate
Several consulted stakeholders believed the creation of UN-Women had given the agency a considerable
boost in terms of its perceived legitimacy as the primary point of reference for gender themes within the
UNCT. At the same time they noted that some legacies would probably take time to change. Historically,
UNIFEM had been perceived more as a type of NGO or activist organization than a United Nations entity
and, as such, national stakeholders tended to approach, for example, established agencies such as UNFPA
for VAW-related policy advice. At the time of the country site visit, this practice appears to have
continued, indicating that UN-Women is not yet being seen as the port of call for coordinating and
mainstreaming gender equality concerns within the UNCT and/or as the main ‘go to place’ for national
government partners. However, as noted above, consulted stakeholders did acknowledge that the transition
to UN-Women carried the potential to change this. At the same time, some respondents also noted the need
to further clarify and explain UN-Women’s new mandate and priorities to national partners, as not all of
them had a clear understanding of these dimensions.
In terms of focusing on upstream policy work, respondents indicated that the transition from UNIFEM to
UN-Women has not been easy. Some consulted UN-Women staff noted that they still lack the required
expertise at the policy level, and are more comfortable with the more traditional advocacy role that had
characterised UNIFEM’s work in Brazil in the past.
5.
Recommendations
The following suggestions and recommendations to the UN-Women offices in Brazil and headquarters are
based on the data collected for the country case study.
The UN-Women country office in Brazil should:
8) Continue and broaden efforts to communicate the mandate and objectives of UN-Women as
regards work on VAW in Brazil to other United Nations entities and national partners. This would
also be a first step towards enhancing UN-Women’s collaboration with other agencies in the
UNCT, and, eventually, taking on more of a coordination role as regards gender equality in
general, and VAW in particular.
9) Further strengthen its relationship with the specialized technical units working in EVAW in
Brazil’s federal government, e.g. by identifying specific areas where UN-Women’s technical
expertise can add value to the work of its government counterparts. This suggestion recognizes the
strength of the relationship at the political level, but the potential for more consistent coordination
with specialized units in SPM, for example.
10) Reaffirm relationships with CSO/NGO partners. Given the concerns raised by CSOs/NGOs
about a potentially loosening relationship with UN-Women (if UN-Women places greater
emphasis on work with government), UN-Women may want to revitalize engagement strategies
with key CSO/NGO partners, within the limits of human and financial resources available. At the
same time, UN-Women may want to take stock of its existing government and non-government
partners and explore what, if any, additional ‘non-traditional’ groups it may want to/be able to
19
engage with in relation to its work on VAW (e.g. how to enhance its engagement with men and
boys; or with cultural/religious groups including conservative entities).
11) Explore possibilities of increasing the proportion of permanent/long- term staff versus shortterm contract employees. Related measures would, of course, depend on the availability of
appropriate resources (see suggestion 8 below).
12) Strengthen its systems for planning, monitoring, capturing and communicating the results of
its VAW-related work. This suggestion relates to the noted need to strengthen the country offices
M&E and knowledge management capacities.
13) In line with the new country (rather than regional) focus of the UN-Women office in Brazil,
explore whether and how VAW-related efforts can be shaped more clearly as part of a mid- to
long-term strategy for the whole country, rather than a collection of short-term micro projects.
Should the Brazil country office decide that available resources are not sufficient to carry out
VAW specific programming, it should still aim to make explicit and capture VAW-related
components of other areas/initiatives that it engages in.
UN-Women at headquarters should:
14) Provide further corporate and/or regional guidance on i) operationalizing UN-Women’s
mandate as it relates to VAW, in particular as regards inter-agency coordination; and ii) UNWomen’s corporate understanding of, and approach to, addressing VAW.
15) Align required tasks and available human and financial resources by, for example, allocating
resources to strengthen M&E capacities and/or by supporting measures to reduce staff turnover in
the Brazil country office.
6.
The following observations made in the context of the Brazil case study deserve particular attention when
comparing the results of all seven country case studies conducted as part of this evaluation, as well as in
compiling the overall synthesis evaluation report:

Challenges posed to Brazil’s specific work by the UNIFEM office being a sub-regional rather than
country office, and that available human and financial resources were largely considered too
limited to allow adequate attention to each individual country and/or thematic area;

The absence of an explicit or implicit theory of change and/or clear ‘bigger picture’ plan for
addressing VAW in Brazil, and the dominance of short-term micro-projects or activities;

At the onset of the period under review Brazil already possessed a fairly developed legal and policy
framework for addressing VAW.
Exhibit 6.1. Implications for the overall evaluation
Dimension
UN Women
strategies/Types of
interventions in Brazil
Link to results outlined in
reconstructed corporate results
logic
Brazil/risks
20
Operational
The main strategies focused
on:
These types of strategies link to the  Training activities for service
corporate results in the areas of :
providers lead to institutional
change
 Monitoring implementation
 Legislation and policies
of the Maria da Penha Law
 Increasing the capacity of
service providers,
particularly in the justice

sector (often in the form of
training)
 The Safe Cities Initiative

 Raising awareness of
cultural elements that
legitimate violence as a form
of empowering women
Inter-agency
coordination
 UNITE campaign
 Mulheres e Direitos initiative
 Participation in the gender,
race, and ethnicity working
group
implemented to respond and
 Strong partner organizations
prevent violence against women
(e.g. with sufficient funding)
and girls
continue to work on EVAW
and advocate for change at
National and local-level
state and local levels
authorities enhance number or
quality of services
Gender advocates and women
influencing policies, actions, and
budgets to address ending
violence against women and girls
 Enhanced United Nations system-  Lack of empirical evidence to
wide understanding and
illustrate the effects of the
mobilization of ending violence
campaigns
against women and girls activities  Continuity of innovative
and investments
programming e.g. with men
and boys in the different
United Nations entities
21
Appendix I
The following individuals participated in the national reference group:

Rebecca Reichmann Tavares, UN-Women representative

Júnia Puglia, former UN-Women Programme Manager

Luis Fujiwara, UN-Women

Fernanda Lopes, UNFPA

Glaucia Souza, SPM (staff at the national women’s mechanism)

Veronica Ferreira, SOS Corpo (national NGO)
23
Appendix II
Evaluation Matrix
Purpose
The country site visits provide context specific insights to both the evaluation’s backwards and forwardlooking components. The retrospective insights involve gathering information on the ‘distance travelled’ in
terms of EVAW to date; the contributions of UN-Women’s predecessor entities to this progress in the
Approach
CSO focus
interviews or focus
National
Government
interviews
UN-Women
interviews
Observation
UN CMT interviews
Country records
Case Studies
LINES OF INQUIRY
METHODS
1.1 During the period 2008-2011, how did contextual and environmental factors
affect or influence the VAW work of UN-Women’s predecessor entities?
√
√
√
√
√
√
√
√
√
over time?
√
√
√
√
achieving national results on preventing VAW and expanding access to services
at country level?
√
1.5 What have been UN-Women’s predecessor entities’ contributions to results
with regards to coordinating EVAW related efforts inside (and outside) the
United Nations system?
√
√
√
√
√
√
√
√
√
√
√
25
√
CSO focus
interviews or focus
National
Government
interviews
√
UN-Women
interviews
√
UN CMT interviews
Observation
LINES OF INQUIRY
METHODS
Country records
Case Studies
√
√
√
operationalizing its mandate for EVAW aligned with its normative, operational
and coordination dimensions?
√
√
√
√
√
26
Appendix III
Documents Reviewed
UNIFEM documents
UNIFEM (2011). Brazil and Southern Cone 2011 Budget Allocations.
UNIFEM (2010). Annual Report 2009-2010.
UNIFEM (2008a). Sub-regional strategic plan 2008-2009 for Brazil and Southern Cone Countries.
UNIFEM (2008b). Brazil and Southern Cone sub-Regional Work plan 2008-2009.
Documents related to specific UN-Women, UNIFEM or UN Trust Fund projects
Catolicas pelo direito de decidir (CDD) (2009). Informe de Actividades: Violencia de género: acción y
capacitación para el cambio de políticas y servicios de atención en Argentina y Brasil con perspectivas
hacia el Conosur.
CDD (2008a). Informe de Actividades Parcial/Final: Violencia de género: acción y capacitación para
el cambio de políticas y servicios de atención en Argentina y Brasil con perspectivas hacia el Conosur.
CDD (2008b). Informe Financiero Proyecto Violencia de género: acción y capacitación para el
cambio de políticas y servicios de atención en Argentina y Brasil con perspectivas hacia el Conosur.
Instituto Promundo (2012). “Engaging men to end gender-based violence: A multi country intervention
and impact evaluation study.”
Presidencia da Republica, Secretaria Especial dos Direitos Humanos and UNIFEM (2008). Revisão de
orazi BRA/99/W01: Programa regional piloto de prevenção e atenção a violência intrafamiliar contra
a Mulher.
Presidencia da Republica, Secretaria Especial dos Direitos Humanos and UNIFEM (2007). Revisão
projeto BRA/99/W01: Programa regional piloto de prevenção e atenção a violência intrafamiliar
contra a Mulher.
Presidencia da Republica, Secretaria Especial dos Direitos Humanos and UNIFEM (2005). Programa
regional piloto de prevenção e atenção a violência intrafamiliar contra a Mulher: Revição substantiva
Março 2005.
SOS Corpo (2011). Projeto: Cidades sem violência contra as mulheres no trabalho informal- Relatório
financeiro detalhado final.
SOS Corpo (2010). Relatório final avaliativo ao projeto Ampliando Debate e Ações Feministas no
Enfrentamento à Violencia contra as mulheres nas Cidades.
SOS Corpo (n.d.). Relatório de atividades parcial Cidades sem vilência contra as mulheres no
trabalho informal.
UNIFEM-AECID (2010). Mid-Term External Evaluation (2006-2009) - Cities Without Violence
Programme for Women: Safe Cities for All. November 2010.
UNIFEM (2011a). Cooperation Agreement UNIFEM-SOS Corpo, Project 006/2011.
UNIFEM (2011b). Cooperation Agreement UNIFEM- CDD Brasil projeto 050/2011.
UNIFEM (2011c). Cooperation Agreement UNIFEM- CAMTRA projeto 052/2011.
UNIFEM (2011d). Cooperation Agreement UNIFEM- CDDHEP projeto 053/2011.
27
UNIFEM (2011e). Safe Cities without Violence towards Women, Safe Cities for All Men and Women
(regional programme): Sixth progress report to AECID, September 2010 – August 2011.
UNIFEM (2011f). Project Document: Education for women’s rights: disseminating knowledge about
the Maria da Penha Act and how to use it.
UNIFEM (2010a). Cooperation Agreement UNIFEM- CAMTRA projeto 077/2010.
UNIFEM (2010b). Cooperation Agreement UNIFEM- CAMTRA projeto 077/2010.
UNIFEM (2010c). Safe Cities without Violence towards Women, Safe Cities for All Men and Women
(regional programme): Fifth progress report to AECID, September 2009 -September 2010.
UNIFEM (2010d). Periodic Progress Report for UNIFEM LAC (subregional, regional and global
programmes).
UNIFEM (2010e). Relatorio Financeiro: Projeto Ampliando Debate e Ação Feministas no
Enfrentamento à Violência contra as Mulheres nas Cidades 2009-2010.
UNIFEM (2009a). Cooperation Agreement UNIFEM-SOS Corpo, Project 017/2009.
UNIFEM (2009b). Cooperation Agreement UNIFEM-Secretaria de Asistencia Social e Direito
Humanos.
UNIFEM (2009c). Cooperation Agreement UNIFEM- Themis Project 034/2009.
UNIFEM (2009d). Cooperation Agreement UNIFEM- AGENDE projeto 108/2009.
UNIFEM (2009e). Safe Cities without Violence towards Women, Safe Cities for All Men and Women
(regional programme): Fourth progress report to AECID, October 2008-September 2009.
UNIFEM (2009f). Cost-sharing agreement between UNIFEM and AVON.
UNIFEM (2008a). Grant Agreement between UNIFEM and CDD.
UNIFEM (2008b). The Promotion of Rights of Brazilian Young Women who are Vulnerable to Sexual
Abuse and Commercial Sex Exploitation: Financial Report for Year Ended 31 December 2008.
UNIFEM (2002). Fact Sheet: Sexual Abuse and Exploitation of Young Women in Brazil.
UNIFEM (n.d.). Project Document: Regional Pilot Programme for the Prevention of and Attention to
Intrafamily Violence against Women
UN Trust Fund (2012). Active Portfolio Summary August 2012 database
UN Trust Fund (2008a). Update of Project Achievements 2008: Violencia de género: acción y
capacitación para el cambio de políticas y servicios de atención en Argentina y Brasil con perspectivas
hacia el Conosur- CDD.
UN Trust Fund (2008b). Engaging men to end gender-based violence: A multi-country intervention and
impact evaluation study. Logical Framework Results Format.
UN Trust Fund (2008c). Engaging men to end gender-based violence: A multi-country intervention and
impact evaluation study. Project Document Format.
UN Trust Fund (2008d). Engaging men to end gender-based violence: A multi-country intervention and
impact evaluation study. Final Annual Progress Report.
Other documents
CEDAW (2012). Concluding observations of the Committee on the Elimination of Discrimination
against Women: Brazil, CEDAW/C/BRA/CO/7 (p. 7).
28
Centro Brasileiro de Estudos Latino-Americanos (2012). Mapa da Violência 2012 – Atualização:
Homicidio de Mulheres no Brasil.
ECLAC (May 2012). The Economic and Financial Crisis. Its Impact on Poverty, Work and Women's
time.
Secretaria Especial de Políticas para as Mulheres (2007). Pacto Nacional pelo Enfrentamento à
Violência contra a Mulher.
World Bank LAC (April 2011). A Break with History: Fifteen Years of Inequality Reduction in Latin
America.
United Nations Development Programme (UNDP) (2011). Human Development Report 2011.
UNODC and UN-Women (2011). Informe Regional sobre los Mecanismos de Respuesta a la Violencia
contra la Mujer en los países de Cono Sur.
Websites
UNIFEM. “Noticias”. Available from
http://www.unifem.org.br/003/00301009.asp?ttCD_CHAVE=145539
UNIC Rio de Janeiro. ONU no Brasil. Available from http://unic.un.org/imucms/rio-dejaneiro/64/160/onu-no-brasil.aspx
UN Trust Fund. Grantees - Católicas por el Derecho a Decidir (CDD): Gender violence: action and
training for policy change and care services in Argentina and Brazil, with perspectives for the Southern
Cone. Available from http://untf-evaw.org/beta/?grantees=172
UN Trust Fund. Grantees- Instituto Promundo: Engaging Men to End Gender-Based Violence: a MultiCountry Intervention and Impact Evaluation Study. Available from http://untfevaw.org/beta/?grantees=123
World Bank. List of Economies 2012. Available from
http://siteresources.worldbank.org/DATASTATISTICS/Resources/CLASS.XLS. Accessed 27
November 2012.
29
Appendix IV
Organization
Role/Title
UN-Women
UN-Women Regional Office Brazil and
Southern Cone
Coordinator of Strategic Planning
and Institutional Development
Individual interview
Southern Cone
Former Programme Coordinator
Southern Cone
Coordinator of Leadership and
Participation Thematic Area
Group interview
Southern Cone
Programme Associate Leadership
and Participation
Group interview
Southern Cone
Regional Representative
Southern Cone
Programme Officer EVAW
Individual interview and Group
interview
Southern Cone
Programme Associate EVAW
Individual and group interview
Southern Cone
Programme Manager
SEPPIR (Secretaria de políticas de
promoção da igualdade racial) – government
ministry
Special Programmes Manager
Group interview
SEPPIR
Project Manager
Group interview
SPM (Secretariat of Policies for Women) government
General Coordinator for
Strengthening the Service
Network for Women in Situations
of Violence
UN AIDS
Country Coordinator
Group interview
UN AIDS
Programme Associate
Group interview
UN Country Team
Resident Coordinator
UNFPA
Assistant Representative
SOS Corpo
Researcher
THEMIS – Assessoria Jurídica e Estudos de
Gênero
Executive Coordinator
Instituto Avon
Diretor Executivo da Área de
Responsabilidade Social
Partners/Stakeholders in Brazil
31
Interview Guide
CSO Representatives
Introduction: An external company has been engaged to undertake an evaluation of UN-Women’s work
on ending violence against women and girls. This thematic evaluation includes studies of ending violence
against women and girls work in seven countries and this interview will contribute to your country case
study. Thank you for agreeing to this interview. This document is intended to be a guide for our
discussion, which I expect will take roughly one hour. All interviews are confidential, in that information
you provide will only be reported in aggregate, summarizing all key informant interviews without
attribution to the sources.
Guiding Questions
1. Your role
1.1 Can you briefly describe your role on work to
end violence against women and girls?
Prompts (What to probe for)
How much of your organization’s work on ending
violence against women and girls is connected to
or funded by UN-Women?
1.2 What is the nature of the relationship between
your organization and UN-Women as regards
EVAW?
2. Relevance
2.1 To what extent has UNIFEM and UN-Women’s For example in view of priorities outlined in
violence against women and girls work been aligned national action plans, strategies or other guiding
with the needs and priorities of [insert country]’s
documents
Government and population?
Needs, e.g. in terms of technical capacities,
financial resources, facilitation, access to
networks etc.
3. Contributions to Results
3.1 What types of support have you received from
UN-Women to support your EVAW work?
Does UN-Women provide your organization with
useful data, information and knowledge on ending
violence against women and girls work? If yes,
can you give examples of information/tools that
were helpful to you?
Does UN-Women help you/ your organization
participate in any networks domestically,
regionally or globally that inform ending violence
against women and girls work?
Any other types of support?
3.2 Other than UN-Women, do you work with other How would you compare the relationship with
United Nations entities? If so who and on what
UN-Women to that with other United Nations
interventions?
entities and why?
33
Guiding Questions
3.3 In your view, what have been specific results of
work to end violence against women and girls
supported by UN-Women and UNIFEM in [insert
country] over the last four years?
For example in view of:
a) Legislation and policies adopted and
implemented to respond to and prevent violence
against women and girls;
b) Women and gender advocates influencing
policies, actions and budgets to address violence
c) National and local-level authorities enhancing
the number and/or quality of critical services to
survivors of violence against women and girls;
d) Awareness of, and public support for ending
violence against women and girls from decision
makers, leaders, and community members;
e) Other and/or unintended results
3.4 How would you assess [insert country]’s overall
progress on ending VAW from 2008 – present and
why?
3.5 To what extent and how has UNIFEM and UNWomen’s work contributed to these changes?
a) Institutional and/or societal norms and
behaviours have become more supportive of
ending violence against women and girls;
b) Government and service providers are
accountable to women and girls for prevention,
protection and response to violence against
women and girls;
c) Women and girls who are survivors of violence
demand, and have increased access to critical
services, including justice;
What other factors/actors beyond UN-Women’s
work are likely to have contributed to these
changes (or the lack thereof)?
3.6 In your view, to what extent and how have
contextual factors or developments supported or
hindered UN-Women and other actors in achieving
violence against women and girls-related results?
For example, changes in the socio economic
and/or political environment; changes in social
contexts (e.g. norms, values, priorities of different
groups)
3.7 Based on your experience, what are key lessons
learned as regards the question of ‘what works and
what does not’ in violence against women and girls
programming?
For example, in view of specific
approaches/strategies; including working with
specific stakeholder groups (men, boys), in
specific sectors, or using innovative/creative
methods.
Which have worked well, which have not? Why?
34
Guiding Questions
3.8 How has the issue of sustainability been
addressed or considered in interventions in [insert
country]?
For example, by ensuring that capacity is
institutionalized; by providing follow-up support;
by strengthening national ownership and
leadership, as well as partnerships among key
actors
4. Strengths and weaknesses
4.1 Looking back over the last four years, can you
identify any specific organizational strengths of
UNIFEM or UN-Women that should be capitalized
on in future?
4.2 In that same timeframe, are there organizational
weaknesses that have negatively affected UNWomen’s/UNIFEM’s violence against women and
girls work in [insert country] and require attention
going forward?
For example, related to skills/expertise, human
and financial resources, tools, reputation,
dedication, partnerships, way of working etc.
Related to the main dimensions of UN-Women’s
mandate: operational, normative, inter-agency
coordination
5. Strategic positioning
5.1 What are the most significant opportunities and
barriers to successful work to end violence against
women and girls in [insert country]?
Going forward, what is critical to success in
[insert country]’s efforts to ending violence
against women and girls?
5.2 In your view, what would it mean for UNWomen to be ‘strategically positioned’ to fulfill its
mandate in relation to violence against women and
girls in [insert country]?
Positioning relative to, for example:
5.3 Do you have any suggestions how UN-Women
could further enhance its strategic positioning in
view of violence against women and girls-related
work in your country?
UN-Women’s partners (in particular other United
Nations entities) have a shared understanding of,
and are in agreement with, UN-Women’s
leadership in and approach to ending violence
against women and girls
UN-Women having a clearly defined approach
and the capacity to operationalize its mandate to
end violence against women and girls.
Other?
Thank you for your contribution to the evaluation!
35
Appendix VI
UN-Women and UNIFEM Projects
1. Cities without Violence against Women, Safe Cities for All
The programme was supported by the Spanish Agency of International Cooperation for Development
(AECID) and aims to contribute to the reduction of public and private forms of violence against women
(VAW) in cities through strengthening their active exercise of their rights and the development of a public
and social agenda that generates the right conditions for a shared coexistence in freedom. From 20062009 AECID provided a total of €3,583,610 and a further €1,694,960 in 2011 for the entire regional
project.
The programme was developed in 2009 in Brazil in partnership with SOS Corpo, a local NGO. Between
2009 and 2011, UNIFEM granted a total of $47,000 to SOS Corpo for two projects. In 2009, UNIFEM
granted $12,000 for a six-month project on “Escalating the debate and feminist actions in the fight against
violence against women in cities.” The objective of the project was to strengthen the actions of the
women’s movement in the state of Pernambuco, focusing on the creating of public policy proposals for
VAW within the country, the project focused on creating spaces for dialogue and debate between CSOs
and the government. In 2011, UNIFEM granted $35,000 for the implementation of the 12-month project
“Cities without VAW in informal labor.” The objective of the project was to work with female informal
workers, especially with collectors of recycling material, working and living on the street.
According to the Progress Report of the Safe Cities Programme of 2009, in 2009 UNIFEM collaborated
with the SPM on a proposal that contributed to mainstreaming gender equality policies and the inclusion
of women in policies for public security in the country.
2. Education for women’s rights - Disseminating knowledge about the Maria da Penha Law and
how to use it
This partnership project between UN-Women and Avon Institute aims to contribute to the implementation
of the Maria da Penha Law and reduce domestic VAW in Brazil by raising awareness; disseminating
information; mobilizing young people and key actors in Brazilian law enforcement (police chiefs, public
defenders, public prosecutors, magistrates and lawyers); and working with government organizations such
as SPM and CSOs. Between June 2009 until December 2013, AVON invested $819,672,13 whilst
UNIFEM provided in-kind contributions of $32,786.89.
Work focuses on sensitizing these actors to: women’s rights and the violation of them; the reality of
domestic VAW in Brazil; the cycle, causes and consequences of domestic VAW; existing mechanisms of
instruments to prevent and respond in domestic violence situations; and the importance of the
implementation of Maria da Penha Law.
The expected outputs of the project were to:

Disseminate information on human rights, especially women’s rights to stimulate discussion and
promote non-violent attitudes among young people.

Use educational tools to promote behavioural changes among children and youth through
magazines, schools, and organizations working with young people.

Ensure professionals in the legal system were aware of domestic VAW issues in Brazil and the
Maria da Penha Law.

Ensure professionals in the legal system had access to the Maria da Penha Law Handbook.

Elaborate, execute and disseminate a digital multimedia platform communication and publicity
plan.
3. Programa Regional Piloto de Prevenção e Atenção à Violencia Intrafamiliar Contra a Mulher
This programme was a technical cooperation between the Special Secretariat for Human Rights of the
Brazilian Government and UNIFEM, in which the Inter-American Development Bank (IADB) and the
Government of Brazil invested $748,000. The programme aimed to design and implement an attention
and reference system to better attend the victims of intra-domestic violence. The programme started in
1999 and was expected to be completed in 2003. However, according to the existing documents, the
project was extended for short periods of time in 2005, 2007 and 2008.
4. Sexual Abuse and Exploitation of Young Women in Brazil/ Promoting the Rights of Young
Women in Brazil who are Vulnerable to Sexual Abuse and Commercial Sexual Exploitation
The objective of the project was to promote young women’s rights and to eliminate all forms of violence
against them so that they can fully function in society. It ran for four years from 1998-2002. The project
was executed by UNIFEM but managed by the State Secretariat of the Ministry of Justice of Brazil with a
total project budget of $861,735. Additional funding of $55,407 was given in 2008 with funds being taken
from the UNIFEM project Programa Regional Piloto de Prevenção e Atenção à Violencia Intrafamiliar
Contra a Mulher in order to finalize some outstanding project activities.
Core funding support
Based on the document review, data showed that UN-Women and UNIFEM also used approximately
$173,000 of core funding to support several governmental organizations and NGOs to implement projects
related to EVAW. Funding was given to the following organizations and their respective projects:

The Social Assistance and Human Rights Secretariat of the State of Rio de Janeiro received
$40,000 in 2009. The period and project name is unknown.

Themis Assessoria Juridica e estudos de genero (Themis Legal Council and Gender Studies)
$14,000 for a project, which ran from June 2009 until June 2010. The project name is unknown.

Casa da Mulher Trabalhadora (CAMTRA): Received funding of R$46,250 for a three-month
period in 2011 for the project Ativismo, Para Combater a Violencia Contra as Mulheres
(Activism to Fight for Violence against Women). This project aimed to strengthen activism
against all forms of VAW with organized or non-organized women and among society in Rio de
Janeiro. UNIFEM also provided the organization R$50,991.80 in funding between December
2010 and November 2011, but it is not clear whether or not it was for the same project.

Ações em Genero Cidadania e Desenvolvimento (AGENDE): Between November 2009 and
January 2010, UNIFEM gave the organization $15,000 although there is no information on the
project.

Catolicas pelo direito de decidir (CDD): Received a total of R$48,000 in UNIFEM funding for
the project Genero e Religião: Multiplicando uma cultura de não violencia (Gender and Religion:
Multiplying a non-violent culture) for a three-month period in 2011. The project was a
collaboration on work related to VAW but from the religious perspective that legitimizes violent
actions. The project looked to transform the violent culture, behaviours and actions through
capacity-building on ethical arguments, raising awareness on existent mechanisms for
implementing the Maria da Penha Law, and disseminating information about religion and VAW.

Centro de Defesa dos Direitos Humanos e Educação Popular: UNIFEM gave R$49,904 of funds
for the project Revigorando o Enfrentamento á Violencia Contra as Mulheres (Reviving the Fight
for Violence against Women) for a three-month period in 2011. The project aimed to build
leadership for the human rights movement in the Amazon region by producing and disseminating
information about the National Programme for Human Rights; and creating dialogue between
human rights movements, women’s movements and institutions related to VAW.
UN Trust Fund Projects
1. Gender violence: action and training for policy change and care services in Argentina and
Brazil, with perspectives for the Southern Cone: Catholics for the Right to Decide received
$120,000 to implement the project in Argentina and Brazil for a 24-month period. In Brazil, most of
the activities took place in the North and North-East and were planned around the framework of the
Maria da Penha Law and its impact on VAW. Activities included several workshops and seminars
around the following themes:

Raising awareness on service centres and attention networks available for victims of VAW;

Gender and symbolic violence;

Sexual and reproductive rights, violence and religion;

Public policies to confront VAW;

Raising awareness on the Maria da Penha Law; and

VAW and racial issues.
According to the 2009 CDD progress report, the project was able to encourage the participation of
people directly involved in public policy, such delegates from government and NGOs, directors
and delegates of Centres for the Attention of Women, directors from medical and legal institutes,
and delegates from the SPM.
2. Engaging Men to End Gender-Based Violence: a Multi-Country Intervention and Impact
Evaluation Study:
From 2008-2010, the Instituto Promundo received support from the UN Trust Fund for the
implementation of a multi-country project (India, Brazil, Chile and Rwanda) that aimed to engage
men and boys in preventing VAW and promote gender equality. Project activities included
workshops with men and young men, and workshops with partner staff on evidence-based
methods to prevent VAW. In Brazil, activities were implemented through sports-related
interventions, particularly weekly soccer matches, which were used as a venue for dialogue and
used as an opportunity to raise awareness on the workshop themes. The two main objectives of
the workshops and campaigns were:

To improve participants’ knowledge on gender equity issues and different forms of VAW, an
understanding on the consequences of VAW, and inform participants on the laws and policies
related to VAW; and

To encourage participants to denounce cases of VAW in their communities either by reporting
cases of violence against women and girls and questions those perpetrating violence again women
and girls.
According to an impact evaluation done of this project,88 the percentage of men who believed
intimate partner violence was acceptable decreased following the project activities. Other gender
equity-related attitudes experienced a change following the activities.
88
Instituto Promundo (2010). Engaging men to prevent gender-based violence.
Appendix VII
89
P r e v e n t V i o l e n c e a g a i n s t Wo m e n
and Expand Access to Services
Country Case Study: Grenada
Acronyms
CEDAW
Convention for the Elimination of All Forms of Discrimination Against Women
CSO
Civil Society Organizations
CSW
ECLAC
Economic Commission for Latin America and the Caribbean
EVAW
Ending Violence against Women
GBV
GNOW
Grenada National Organisation of Women
GRENCODA
Grenada Community Development Agency
LAC
LACC
Legal Aid and Counselling Clinic
M&E
MoSD
Ministry of Social Development
NGO
NSAP
National Strategic Action Plan
OECS
Organization for Eastern Caribbean States
SSA
Strengthening State Accountability
UN Trust Fund
United Nations Trust Fund to End Violence against Women
UN-Women
UNCT
UNFPA
UNICEF
UNIFEM
United Nations Development Fund for Women
VAW
August 2013
i
Contents
1.
2.
Introduction 1
2.1
2.2
2.3
3.
3.1
3.2
3.3
3.4
4.
Context
2
Regional – The Caribbean 2
National - Grenada 3
4
Profile of UNIFEM supported VAW programming in Grenada (2008-2011)
6
Overview
6
VAW programming in Grenada
7
8
Findings
4.1
4.2
4.2.1
4.2.2
4.2.3
4.2.4
4.2.5
4.2.6
4.3
learned
4.4
8
Overview
8
9
General
9
10
14
16
Organizational strengths and weaknesses in managing EVAW: Lessons
17
5.
Recommendations 22
6.
Exhibits
Exhibit 4.1 Effects/influences of contextual factors
9
16
24
August 2013
iii
Appendices
27
39
41
Appendix VIII Implementing the National Strategic Action Plan
35
43
August 2013
iv
1.
Introduction
Background
Violence Against Women and Expand Access to Services.
The objectives of the overarching evaluation were to: i) capture key results and lessons learned from the
contributions of UN-Women’s four predecessor entities90 during the period 2008-2011 which UN-Women
has taken forward, relating to supporting countries to prevent violence against women and girls and expand
access to related services, and ii) analyze how well UN-Women is strategically positioned to implement its
mandate of normative, operational and coordination work in the area of violence against women (VAW).91
The country case study summarizes key findings on lessons learned from the work of the United Nations
Development Fund for Women’s (UNIFEM), UN-Women’s predecessor entity, to eliminate violence
against women and girls in Grenada, and on UN-Women’s strategic positioning on the issue. The draft case
study was revised on the basis of feedback from the UN-Women Evaluation Office and the Grenada
national reference group (see Appendix I).
Methodology
Based on a pilot site visit to Jamaica and following feedback from the UN-Women Evaluation Office, the
evaluation team developed a case study methodology outlining the purpose and approach to the case
The case study evaluation matrix (Appendix II) outlined the three strategic questions upon which data
collection for the country case studies was structured. Key data sources included documents (listed in
Appendix III) and in-person interviews during the evaluation team mission to Barbados and Grenada, 26-29
November 2012. The evaluation team conducted interviews with 12 stakeholders for the case study, as
listed in Appendix IV. Appendix V provides a sample interview protocol; protocols for other stakeholder
groups were similar, but tailored to the respective group. Appendix VI provides a description of the
projects reviewed for the case study. The reconstructed (draft) results logic for UN-Women VAW
programming, which was used to structure evaluation findings in Section 4 of this report, is presented in
Appendix VII.
To guide the overall evaluation, the evaluation team, in consultation with the evaluation reference group at
UN-Women headquarters in New York, developed a detailed corporate theory of change for EVAWrelated work. This results logic was used to design interview protocols and was the basis of efforts to
understand the rationale for the types of initiatives being implemented in each country and the results they
sought to achieve. For both Grenada and Jamaica, this was complemented by discussions with UN-Women
staff during the pilot visit to Jamaica to share and review this draft results logic, and elicit feedback
regarding its relevance in view of UN-Women’s work in the Caribbean.
90
91
More information on evaluation objectives and methodology is available in the evaluation Inception Report (November 2012).
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Limitations
The main challenge for the Grenada country case study was the country’s comparatively small size which
meant that the number of government and non-government partners UN-Women has worked with on VAW
(and who could be consulted for the evaluation) was limited. Furthermore, UN-Women and UNIFEM
engaged in a limited number of VAW-specific initiatives in Grenada during the period under review and
the number and quality of available documents related to each of these initiatives varied. Overall, compared
to the other country case studies of this thematic evaluation, the data on which to base findings and
recommendations was much more limited.
Report structure
The case study is structured in five sections. Section 2 summarizes the background contexts for UNWomen and UNIFEM’s work on violence against women and girls between 2008 and 2011. Section 3
presents a profile of UN-Women and UNIFEM managed or supported programming from 2008-2011.
Section 4 presents the evaluation findings on the three strategic evaluation questions. Section 5 provides
suggestions and recommendations for UN-Women which emerged from the Grenada case study and
Section 6 summarizes key observations from the Grenada case study relevant to the overall evaluation.
2.
2.1
Context
R e g i o n a l – T h e C a r i b b e a n 92
While all Caribbean countries, with the exception of Haiti, are classified as middle-income, they have all
experienced negative fallout due to new trading regimes, rising fuel costs and the global financial crisis.
The region is vulnerable to natural disasters which have become more frequent and/or severe due to climate
change. Poverty rates in the subregion range from 14 per cent in Barbados to 39 per cent in Dominica.
Poverty tends to be most concentrated in women-headed households, and most affects children, women, the
elderly and those living in rural areas. Given the declining fiscal capacity of states, financial contributions
to the poorest households is a policy concern in the Caribbean region.
Due to its geographic location, the Caribbean is a popular site for the shipment of narcotics and weapons.
Coupled with high levels of youth unemployment, there have been increases in violent crime and
community insecurity during the past decade.
Sexual VAW is alarmingly prevalent across the Caribbean, with Caribbean Community countries showing
higher than the global average per capita rates. For example, a 2011 study by the Pan American Health
Organization (PAHO) found that almost 50 per cent of the region’s adolescent girls’ first sexual encounter
93
was forced or coerced.
All countries in the region have signed and ratified the Convention for the Elimination of All Forms of
Discrimination Against Women (CEDAW), although only Antigua and Barbuda, Belize, and Saint Kitts
and Nevis have signed and ratified its Optional Protocol. Fewer than half of the countries have national
gender policies.94
92
Adapted from the Latin and Caribbean subregion office annual workplan, December 2011. In particular Part 1 Strategic
Narrative Note.
93
National Domestic Violence and Sexual Abuse Protocol for Grenada (2010).
94
UN-Women, Caribbean subregional office. Strategic Note and Annual Workplan. 2011. Jamaica and the Dominican Republic
have gender policies ratified by parliament. Gender policies are under consideration/development in Barbados, Trinidad and
Tobago and Grenada.
August 2013
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2.2
National - Grenada
Political and economic contexts
The Commonwealth of Grenada consists of three islands (Grenada, Carriacou and Petite Martinique) which
form the southern end of the Windward Islands. Grenada gained independence from Britain in 1974 and
has a parliamentary form of government. It has a population of approximately 104,890.
General elections are held every five years and the first democratic elections since 1976 were held in
December 1984. The current government, which came to power in 2008 under Prime Minister Tillman
Thomas, is facing internal strife – three ministers resigned in 2012 and a no-confidence motion was filed in
September 2012. The Prime Minister dissolved parliament on 10 January 2013 and general elections were
held on 19 February 2013.95 The incumbent centre-left National Democratic Congress lost the election to
the conservative opposition New National Party and the new Prime Minister, Dr. Keith Mitchell, took
office in March 2013. The newly formed House of Representatives includes five female parliamentarians, a
record number for the Parliament of Grenada.96
Grenada has a small, largely tourismbased, open economy.98 Over the past
two decades, the economy has shifted
from agriculture to services, with
tourism being the highest foreign
99
currency-earning sector. Hurricanes
Ivan (2004) and Emily (2005) badly
damaged the nutmeg industry which
had been an important driver of
economic growth. Partly due to the
necessary rebuilding efforts after the
hurricanes, public debt-to-gross
domestic product (GDP) in Grenada
is nearly 110 per cent, leaving the
Thomas administration limited room
to engage in public investment and
social spending.
Gender Equality and ending VAW
(EVAW) in Grenada
International and Regional Commitments to EVAW
CEDAW (signed in 1990)
Beijing Declaration and Platform for Action (1995)
Inter-American Convention on the Prevention, Punishment and
Eradication of Violence (Belem do Para) (signed in 2001)
Relevant national laws, policies, and strategies
National Action Plan to Reduce Gender-Based Violence (GBV) in
Grenada 2012-2017 (2012)97
Criminal Code (amended in 2012)
Domestic Violence Act (2001, amended in 2010)
Domestic Violence and Sexual Abuse Protocol (2010)
Education Act (2002, Section III, 27)
Employment Act (1999, Section 26)
Child Protection Act (2008)
The Government of Grenada has expressed its commitment to gender equality and EVAW through
international commitments, and national laws and policies. However, at the time of writing, Grenada does
not (yet) have a comprehensive national gender policy.100
95
The political situation in Grenada has since settled.
Most Gracious Speech to Both Houses of Parliament by His Excellency the Governor-General. 27 March 2013. Available from:
http://www.gov.gd/egov/docs/speeches_statements/throne_speech_2013.pdf.
97
UNIFEM funded the Strengthening State Accountability (SSA) project which was instrumental in developing the Action Plan as
detailed in Section 4.
98
The official website of the Government of Grenada is available from http://www.gov.gd.
99
Grenada’s principal export crops are nutmeg and mace (Grenada is the world’s second largest producer of nutmeg after
Indonesia). Other export crops include cocoa, citrus fruits, bananas, cloves and cinnamon. Manufacturing industries in Grenada are
mostly small-scale, comprising the production of beverages and other foodstuffs, textiles, and the assembly of electronic
components for export.
100
UN-Women is supporting the Government of Grenada to pursue the development of such a policy, including by providing
financial resources for a consultant to lead the process.
96
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According to Grenada’s report to CEDAW’s 51st Session on government progress and implementation of
CEDAW (February 2012), gender inequality is prevalent and pervasive in Grenada, particularly in the
labour market with unemployment
twice as high for women as for men.
In 2012, Grenada amended the Criminal Code, Art. 29 pertaining to
Domestic violence in Grenada is
spousal rape. Prior to 2012, spousal rape was acknowledged, but in
common and tends to be
a limited fashion. It is now recognized under the same provisions as
non-spousal rape, except the penalty is less harsh.
underreported.101 Women victims of
domestic abuse often do not seek help
because they are economically dependent on their abusers. Homicide rates for the period under review are
also grounds for concern. While more men than women were murdered in Grenada between 2008 and 2012
(48 men compared to 14 women), the number of women victims is rising. A 2012 analysis of homicides on
Grenada noted a lack of effective sanctions against perpetrators of sexual violence.102
The Government of Grenada recognizes that violence against women and girls is part of the larger problem
of overall discrimination against women. The Grenada National Organization of Women (GNOW), one of
the country’s most prominent non-governmental organizations (NGOs) working on women’s needs and
issues, has advocated the need to address sexual harassment in all sectors.
Same sex relations between men are criminalised under the law103 and there is a pronounced reluctance to
recognize the human rights of all regardless of sexual orientation. This is relevant in the context of VAW as
it is likely to reflect and impact on dominant concepts of masculinity.
Grenada’s national infrastructure for ending violence against women and girls comprises mainly the
Ministry of Social Development (MoSD), which supports the Division of Gender and Family Affairs, the
Cedars Home for Abused Women and Children and the Domestic Violence Unit. The latter was set up
within the MoSD in May 2003 and is located in the northern part of the island. It has one staff member and
houses up to 18 women for a period of six months each.
Besides relevant government structures it is important to highlight the significant role of civil society
organizations (CSOs) and NGOs in Grenada. As highlighted by consulted UN-Women staff and national
stakeholders, the NGO sector in Grenada has historically played a pivotal role in the country’s national
response to VAW and is widely recognized for having spearheaded most national initiatives addressing
issues of social justice.
2.3
United Nations in the Caribbean
Most United Nations entities in the Caribbean do not have offices in each country, making inter-agency
coordination such as joint programming difficult. Moreover, existing offices/teams tend to be small (e.g.
the United Nations Population Fund [UNFPA] regional office has three staff members) and funds are
limited. Consequently, programming tends to be limited to short-term interventions and/or one-off events.
The United Nations Secretary-General’s UNiTE to End Violence against Women campaign was officially
launched in the Caribbean in 2010, two years after its global launch. Since then, all United Nations country
teams (UNCTs) in the region have participated in at least one joint event per year. In 2012, the United
101
Immigration and Refugee Board of Canada. Grenada: Domestic violence, including legislation, state protection, and services
available to victims (2009-October 2011). 1 November 2011. GRD103888.E. Available from http://www.refworld.org/cgibin/texis/vtx/rwmain?docid=4ed8d72b2.
102
Government of Grenada. An Analysis of Homicides in Grenada, 2008-2012. 2012.
103
Government of Grenada. Criminal Code, Act 29, Section 177 of the 1958. Revised Laws of Grenada.
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Nations Children’s Fund (UNICEF) led events on violence against girls, while UNFPA led the 2011 event
on access to justice.
In the absence of a UNCT, Grenada is covered by the United Nations subregional team (UNSRT) serving
Barbados and the Organization of Eastern Caribbean States (OECS). There are eight UNSRTs based in
Barbados (including UN-Women) and four in other Caribbean countries.
UN-Women and UNIFEM in the Caribbean
The work of UNIFEM and UN-Women in the Caribbean has been led from the subregional office in
Barbados, which covers programming in 26 countries. As part of the ongoing restructuring process of UNWomen’s regional architecture, the Barbados office was renamed a ‘multi-country office’ as UN-Women
no longer has subregional offices. It is still unclear whether this change will affect the responsibilities of the
Barbados office, e.g. whether it will focus on fewer countries.104
Throughout the period 2008-2011, the UNIFEM subregional team consisted of one to two administrative
staff and approximately four to five programme staff, including a Programme Officer for VAW, mostly on
short-term service contracts. More recently, a Gender Equality Coordination Specialist has been
responsible for operationalizing UN-Women’s inter-agency coordination role. Staffing has not increased
since UN-Women was created and, according to consulted UN-Women team members, no plans are being
made to change this situation. Similarly, available budgets for programming on VAW or any other thematic
areas have not changed significantly since the creation of UN-Women.
The long-serving Caribbean Regional Programme Director recently left, having held the position from
2004-2012. In mid-October 2012, the position was taken over by an interim Officer in Charge and a new
Head of Office was appointed in early 2013.
104
Consulted staff members in the Barbados office mentioned ongoing discussions over a proposal for the office to focus on four to
five countries only.
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P r o f i l e o f U N I F E M s u p p o r t e d VAW
pr ogr a m mi ng i n Gr e na da ( 2 0 0 8 - 2 0 11 )
3.
3.1
Overview
This section provides an overview of UNIFEM assisted or led work on violence against women and girls in
the Latin America and the Caribbean (LAC) region between 2008 and 2011. This includes initiatives
funded and managed by UNIFEM, and projects funded by the UN Trust Fund that were administratively
supported by UNIFEM and (since 2011) UN-Women.
3.2
Violence against women and girls-related programming was guided by the UNIFEM regional strategic plan
for the LAC Region (2008-2011). The plan highlighted two areas relating to violence against women and
girls:

servants, indigenous leaders and teachers, and CSOs.

the United Nations system and other stakeholders; undertaking preventive activities that involve
men, boys, adolescents and indigenous peoples including communications campaigns to prevent
VAW targeting young urban males; and leading the Task Force of United Nations partners in LAC
in their efforts to develop a regional strategy to support the UNiTE campaign.
Programming was also guided by UNIFEM’s Caribbean subregional strategy (2008-2009) which reflected
regional priorities and identified the following foci of VAW-related work: i) building capacities for ending
widespread impunity of sexual assault and domestic violence with a focus on technical, forensic skills
building for the justice and security sectors and monitoring of the state by human rights institutions (e.g.
Ombudsman105) and women’s rights networks and communities; and ii) piloting of the Safe Cities Initiative
in Jamaica and Haiti. Within the Caribbean subregion, Haiti was the only country identified in the regional
strategy as a priority country of UNIFEM’s work.
UNIFEM Core Funding Support
During the period under review, UNIFEM supported VAW-related work in the subregion through a number
of ongoing efforts largely financed through core funds and are therefore not included in the project
investments noted below. UN-Women did not have data on the size of VAW-related investments supported
through core funding. Key efforts conducted with core funding support include the following:
Capacity development
105

Providing occasional financial support to CSO members to attend regional or global meetings (e.g.
related to CEDAW or the CSW).

Providing financial support for institutional strengthening and capacity development of women’s
NGOs working on VAW-related issues, and/or with stakeholder groups for whom VAW is a key
issue.
The state has yet to fully integrate the Ombudsman within its monitoring mechanism of VAW.
August 2013
6

Facilitating regional exchanges and networking of state actors (e.g. representatives of police forces,
judges and other justice sector personnel) and civil society representatives.

Following and providing guidance to grantees of the UN Trust Fund to End VAW (UN Trust
Fund).
Knowledge management/Sharing

Sharing relevant information and resources (tools, reports, studies, etc.) on VAW-related issues,
including information on funding opportunities through other entities. Information was shared
through the corporate and subregional UNIFEM websites, and through active outreach (e.g.
UNIFEM staff members sending out information on relevant resources or events).
Inter-agency coordination

The UNIFEM office in Barbados took a lead role in organizing and reporting on UNiTE campaign
annual events in the Caribbean subregion.
Consulted UN-Women staff emphasized that a lot of programming in the Caribbean had a (sub)regional
character, i.e. that it aimed to facilitate the creation of, and use the synergies and momentum created by
(sub)regional exchanges and collaboration, usually through applying best practices.
3.3
VAW programming in Grenada
UNIFEM supported violence against women and girls-related programming in Grenada through direct
project support and the UN Trust Fund.
UNIFEM VAW-related investments 2008-2011
UNIFEM and UN-Women invested
UNIFEM project support - approximately $231,209
approximately $231,209 in violence
UN Trust Fund – $886,878
programming in Grenada from
UNIFEM core funding – Financial data not available
2008-2011.106 The majority of these
resources were channelled through three projects:107

Strengthening State Accountability (SSA) and Community Action for Ending GBV in the
Caribbean (2009-2011). The project was implemented by the MoSD with a contribution from
UNIFEM of $85,000.

Institutional strengthening of the Legal Aid & Counselling Clinic (LACC). The project provided
support for psychological and educational programming in the areas of aggressor intervention and
victim empowerment between 2010 and 2013 with a UNIFEM contribution of $68,857.

The Partnership for Peace/ Man-to-Man batterer intervention programme was a regional
programme piloted and evaluated in Grenada by the Grenada Community Development Agency
(GRENCODA) and LACC between 2010 and 2012 which received a contribution of $60,000 from
UN-Women.108
106
Unless otherwise indicated, currency denotes United States dollars.
107
Brief descriptions of the three projects are available in Appendix VI.
108
In reviewing a draft version of this case study report members of the national evaluation reference group noted that UN-Women
had supported two other psycho-educational programmes in Grenada, namely the CHANGES victim empowerment programme,
and the development of certain modules for the Sexual Abuse Awareness and Prevention Programme created for schools. However,
the evaluation team did not learn about these interventions during the country visit, nor were these mentioned in the documents
made available by UN-Women.
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7
The latter two projects focused on VAW prevention by working with aggressors and constituted more than
half of the total investments made through donor funded projects.
In addition, UNIFEM supported smaller initiatives focusing on specific events related to addressing VAW
including:

International Day to Protest VAW & 16 Days of Activism Against GBV (2010) implemented by
the MoSD. UNIFEM contributed $6,000.

National GBV Conference (16 Day activity) (2011) implemented by GNOW. UNIFEM contributed
$6,000.

Community Fora on Domestic Violence (16 Day activity) (2008) implemented by the MoSD,
Domestic Violence Unit. UNIFEM contributed $1,852.

Putting Men at the Forefront of the Protest Against Domestic Violence (16 Day activity) (2009)
implemented by the Grenada Save the Children Development Agency. UNIFEM contributed
$3,500.
Between 2008 and 2011, the UN Trust Fund disbursed $886,878 to two projects in Grenada, namely:

Community Support Network for Women Experiencing GBV (2007-2010). The project was
implemented by GNOW and received $212,706.

State Response to End VAW: Legislative and Policy Reform Implementation Programme (20112014). The project was implemented by the MoSD and received $674,172.
3.4
UNIFEM led and coordinated the 2010 launch of the UNiTE campaign in the Caribbean, and took a lead
role in planning and implementing annual joint United Nations events and country-specific media
campaigns. Since 2011 UN-Women has continued this involvement.
Alongside UNIFEM, UNFPA and UNICEF have also actively engaged in issues relating to VAW in
Grenada. UNFPA has focused on issues of sexual violence and VAW in the context of reproductive health
and rights, while UNICEF has addressed violence against girls under its child-protection mandate and
gender mainstreaming commitment. Consulted stakeholders noted that, at the time of writing, UNFPA and
UN-Women were widely recognized as the two United Nations entities working most frequently on VAW
in Grenada.
Findings
4.
4.1
Overview
This section presents findings on the three strategic evaluation questions outlined in the case study
evaluation matrix:
1) For the period 2008-2011, what has been the contribution to results towards EVAW in Grenada
made by UN-Women’s predecessor entities? What are related lessons learned? (Section 4.2).
learned from its predecessor entities in view of planning, implementing, monitoring and
evaluating their EVAW-related work? (Section 4.3).
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8
The lessons/best practices in the sidebars of this chapter reflect the views of consulted stakeholders, project
reports and observations of the evaluation team based on available data.
4.2
4.2.1 General
Grenada based on data collected through interviews with national stakeholders, United Nations entity staff
and through document review.
Section 4.2.2 presents findings on context and relevance, which cut across the different dimensions of UNWomen’s mandate. Sections 4.2.3 to 4.2.5 present findings on contribution to key results in the three
dimensions of UN-Women’s mandate (operational, normative, inter-agency coordination) as outlined in the
reconstructed logic for UN-Women’s corporate work on EVAW. Section 4.2.6 outlines factors likely to
affect the sustainability of results achieved to date.
4.2.2
Context and relevance
Context
The table below summarizes the effects or influences some of the key contextual factors noted in Section 2
above have had on UN-Women and UNIFEM’s violence against women and girls-related work in Grenada.
Exhibit 4.1
Contextual
factor
Effects/influences of contextual factors
Effects/influences on VAW work in Grenada
Grenada is one
of several small
island states in
the subregion.
 Like most United Nations entities working in the Caribbean, UNIFEM did not have a separate
Economic
challenges due
to the global
economic crisis
and natural
disasters.
 Effects the actual/potential extent to which the Government of Grenada is or will be able to
High prevalence
of sexual
violence across
the Caribbean,
including in
Grenada.
 This factor highlights the relevance of any VAW-related interventions conducted in Grenada
Commitment and
 The Government of Grenada is generally supportive of and committed to ensuring gender
country office in Grenada, but served the country from its subregional office. As a result,
UNIFEM staff often had to rely on electronic forms of communication with national partners in
Grenada. The same applies to UN-Women today.
 There is no UNCT in Grenada which limits opportunities for country specific inter-agency
coordination on VAW (or other issues).
 Grenada shares a number of similarities with neighbouring countries with regards to its
governance systems, culture and traditions. These similarities and the relevance of the
subregion as a political and economic unit enhances the potential relevance of (sub)regional
approaches including on VAW. The SSA project also involves conducting research on the
cultural basis for VAW.
allocate resources to issues of social development, including on gender equality in general,
and for addressing VAW in particular.
 In Grenada, economic dependency is one of the main causes for many women to stay in
abusive relationships. The difficult economic situation, which has resulted in rising levels of
unemployment, exacerbates this problem.
and the subregion (see below).
 The high prevalence of sexual violence is likely to influence public perceptions and related
social norms in a way that makes VAW appear to be ‘normal’ and, as such, socially tolerable.
This poses additional challenge for trying to influence and change public opinions, social
norms and related behaviours.
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9
Contextual
factor
capacity of
national
stakeholders.
Effects/influences on VAW work in Grenada
equality and women’s human rights, and addressing issues of VAW. However, actions to this
end have been limited by limited financial and human resources, and a broad number of
competing priorities.
 Civil society and women’s organizations in Grenada possess considerable experience and
expertise in addressing VAW both at national and (sub)regional levels. Their ability to influence
related planning and decision making processes has often been negatively affected by gaps in
funding and related organizational capacity.
Relevance
UNIFEM’s VAW-related work in Grenada was relevant given the country’s global and regional
commitments under the Beijing Platform for Action, CEDAW and the regional convention, Belem do Para.
VAW-related interventions responded to the broad priorities outlined in UNIFEM’s strategic plan for the
LAC region (2008-2011) and those noted in the Caribbean subregional strategy (2008-2009).
Furthermore, UNIFEM supported interventions such as the SSA project, addressed gaps in Grenada’s
policy and legal framework, the absence of a comprehensive and coordinated national approach to
addressing VAW and, to a lesser extent, gaps in the related capacity of duty bearers (including service
providers in the security sector) and rights holders.
The following findings focus on the operational dimension of UN-Women’s current mandate and are
grouped around key types of results. Where applicable, these are linked to the key results outlined in the
reconstructed corporate results logic, as noted in the final evaluation Inception Report, and the LAC
regional strategy (2008-2011) and/or the subregional strategy for the Caribbean (2008-2009).
Developing national policies and legislation addressing VAW in Grenada
The SSA project was spearheaded by the MoSD and brought together government and non-government
actors to jointly develop Grenada’s first draft National Strategic Action Plan (NSAP) to Reduce GBV
(2012 -2017). Consulted stakeholders widely agreed this was a major achievement as it enhances Grenada’s
chances of being able to introduce a coordinated and systematic multi-sectoral approach to addressing
VAW. The draft NSAP aims to provide a common framework and guidance for:
16) Identifying, protecting and supporting victims as they move from being disempowered to
becoming survivors who are empowered to make decisions and take actions in their best interests;
17) Identifying, punishing and rehabilitating perpetrators to reduce offending and re-offending,
whether with current or
potential victims;
18) Creating an environment of
zero-tolerance to GBV at the
institutional, community and
personal levels;
19) Promoting healthy intimate
relationships and early
intervention to reduce
inequalities; and
“Legislation and policies are developed, adopted, and implemented
“Policy and legislation: raising awareness and building capacity for
compliance with international agreement.” (2008-2011 LAC regional
strategy)
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20) Reducing the incidence of all forms of GBV in Grenada.
Implementation of the NSAP is scheduled to begin in 2013109 and will require operationalization, resources
and priority setting. Similar NSAPs have been or are being developed and implemented in other countries
in the region, as noted in the Jamaica country case study. This will help national partners in Grenada to
secure political will and support across state and other actors to implement the plan.
The SSA project also led to the development of a National Domestic Violence and Sexual Abuse
Protocol for Grenada. Related baseline research conducted under the SSA project provided current
information on the police and courts, laws and policies on VAW which laid the foundation for the current
ongoing UN Trust Fund project, State Response to End VAW. Overall, consulted stakeholders agreed that
the SSA project had considerably contributed to strengthening the legal and policy environment in
Grenada. UN-Women provided funding for the SSA project, as well as technical assistance and ongoing
support and advice to the MoSD as the implementing agency.
In addition to work under the SSA project, some national stakeholders noted UNIFEM’s indirect
contributions to the passing of the Domestic Violence Act (2010) alongside the Domestic Violence and
Sexual Assault Protocol.110 While UNIFEM was not directly involved in the development of this Act,
stakeholders noted it only came into being as a result of previous work on a (sub)regional Domestic
Violence Bill conducted by the OECS, which had received financial support from UNIFEM prior to the
period under review.
Strengthening the capacity of
gender advocates in Grenada to
effectively influence policies and
Stakeholders felt that the financial and
technical support provided by UNother civil servants, indigenous leaders and teachers, and CSOs.”
Women and UNIFEM were pivotal in
(2008-2011 LAC regional strategy)
building and maintaining the visibility
of CSOs on interventions related to ending violence against women and girls – particularly with regards to
increasing advocacy in the area of women’s rights and the availability of information on how to access
support, care and justice.
For example, UN-Women provided
financial support and ongoing
advice in the drafting of the
Shadow Report to the 51st CEDAW “National and local-level authorities enhance number and/or quality
Session, at the request of the Interof critical services to VAW survivors.” (Reconstructed corporate
results logic)
Agency Group of Development
Organisations (IAGDO). In March
“Policy and legislation: Building capacity of key actors for the
2012, the CEDAW Committee
called on Grenada to enact
other civil servants [...]” 2008-2011 LAC regional strategy)
legislation pertaining to sexual
harassment in the workplace and trafficking in persons, and amend the sexual offences provisions in the
criminal code. Consulted stakeholders felt that the CEDAW Committee recommendations, coupled with
recent high profile cases of sexual harassment in the workplace, had increased government interest in the
Sexual Harassment Bill. They also noted that the work of gender advocates in Grenada had influenced
109
Appendix VIII provides an overview of the envisaged roles and responsibilities of different government and non-government
actors in the implementation process.
110
The Domestic Violence Act was passed on 1 November 2010 and implemented on 16 May 2011.
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recent amendments to the national criminal code, notably on the issue of spousal rape. Ongoing financial
and technical support (e.g. providing advice, sharing information and tools, or connecting individuals
and/or organizations) provided first by UNIFEM and then by UN-Women had significantly contributed to
this success.
Women’s organizations were involved in the extensive consultations on the draft NSAP for GBV led by the
MoSD with support from UNIFEM.
Strengthening the capacity of national authorities in Grenada to enhance the quality of services to
VAW survivors
Capacity-building initiatives of the SSA project included strengthening the police response to violence
against women and girls. Several police officers and prosecutors in the Royal Grenada Police Force were
trained as trainers, and eight instructors from the Police Training School were instructed in prosecution
methods and approaches. Some were also sent on international and regional internships and training
ventures. Internship programmes were set-up to manage domestic violence and sexual offence cases.
Several officers attended a domestic violence course and internship programme in 2011 at the Algonquin
Police College in Ottawa (Canada), where they learnt techniques for interviewing and interrogation, dealing
appropriately with child witnesses,
proper use of firearms, and
One training participant who teaches at the police school said, “I’m
understanding and handling
seeing things differently in terms of gender bias and getting officers
aggressors.111
to understand we all have these biases, and we have to be more
professional. Judgmental attitudes where I might blame the victim
Several stakeholders applauded the
have changed.”
SSA project as having had a notable
impact on helping to enhance VAW
survivors’ access to justice. Anecdotal evidence provided by interviewed stakeholders indicates that the
trainings conducted under the SSA project had positively influenced the behaviour of the participating
police officers working with VAW survivors. Stakeholders claimed that this had also led to an increased
willingness of women to seek out police support first before accessing additional services as, for example,
provided by NGOs.
One consulted stakeholder reported
how SSA project supported trainings
within the police force had contributed
to strengthening the practical
Positive feedback from participants on trainings for service providers
relevance of the Domestic Violence
does not allow conclusions to be drawn on the (likely) longer-term
Act (amended in 2010). Police
results of these interventions. In order to assess the effectiveness of
interventions, in terms of enhancing the number and/or quality of
officers now understand that criminal
services, longer-term tracking of attitudes and behaviours – and
charges for domestic violence
related reactions of rights holder accessing available services offences are mandatory provided there
would be required.
is a clear statement and supporting
Integrating VAW concerns into the regular training curriculum for
medical evidence. The SSA project
police officers and training in-house trainers in the police force are
also contributed to a revision of the
positive examples of institutionalizing VAW-related capacity
police training manual to include (and
development, as opposed to focusing on ‘one-off’ trainings.
thus institutionalize) information on
gender responsive investigation of
sexual offences and approaches to treating situations of domestic violence. Following the SSA project, the
Royal Grenada Police Force has also engaged in public relations campaigns to encourage reporting of
111
MoSD. Draft National Strategic Action Plan to Reduce Gender-Based Violence in Grenada 2012 -2017. 2012, p.
iv.
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violence against women and girls and, at the request of the public, is currently looking into setting-up a
special desk on domestic violence, although funding has not yet been secured.
Important contributions were also made under the Man-to-Man Batterer Intervention Programme, which, as
outlined in the final project report, led to an expansion of available psychosocial support services, and to
strengthening the knowledge, skills and tools available to service providers in Grenada.
Raising VAW awareness among
decision makers and community
members in Grenada
“Awareness of and public support for EVAW from decision makers,
All reviewed VAW-related projects
leaders, and community members.” (Reconstructed corporate
and ongoing efforts supported first by
results logic)
UNIFEM, and then UN-Women and
“Communication: Undertaking preventive activities that involve men,
the UN Trust Fund, included
components of (public) education,
awareness raising and/or securing
regional strategy)
public support for EVAW, including
the need for systematic efforts to prevent VAW (e.g. through batterer intervention programmes).
All consulted stakeholders expressed the view that related activities had been relevant and successful, in
particular in raising awareness of VAW-related issues among targeted individuals. To date, however, there
is only anecdotal information available on specific effects of the work done around awareness raising and
securing public support for VAW-related work. Existing evidence includes testimonies of training
participants (e.g. police officers) and beneficiaries of the Man-to-Man programme. That the Government of
Grenada has significantly increased financial support for related activities is an indication of both the
projects’ effectiveness, and its impact on influencing public perceptions of the relevance and effectiveness
of psychosocial interventions.
Another result deriving from efforts supported by UNIFEM is a protocol of partnership between the police,
ombudsmen, and community and human rights organizations that has been developed under the SSA
project. The protocol has the potential to support gender advocates to enhance the knowledge and
awareness, as well as the actual
behaviours, of key duty bearers as
One beneficiary of the Man-to-Man programme has become an antiregards VAW.
Engaging with perpetrators of
VAW as part of VAW prevention
VAW activist who now facilitates a programme for young men with
with LACC.
Another programme participant disclosed that the experience had
transformed him, as it had taught him how to deal with his anger in
more constructive ways. The programme had given him a new
perspective on relationships. He further stated that he had taken the
decision to break the cycle of violence that had shaped his family’s
history over several generations.
An important element of UNIFEM’s
work on VAW in Grenada has been
the Partnership for Peace/Man-to-Man
Batterer Intervention Programme led
by LACC. The 16-week psychoeducational intervention focused on perpetrator accountability and has been extended throughout the region
due to its successful implementation at LACC in Grenada.
The final report of the Man-to-Man programme highlighted a low recidivism rate of only 7 out of 100
participants over the 10 programme cycles as an indicator of the effectiveness of the initiative in terms of
preventing further cases of violence.112
112
MoSD. Final Project Report, Strengthening State Accountability and Community Action for Ending Gender-Based
Violence in the Caribbean. December 2011, p.9.
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Consulted UN-Women staff highlighted that the Caribbean office’s engagement with perpetrators of VAW,
as part of VAW-related prevention efforts, were unique within both UNIFEM and UN-Women. As such,
related experiences had the potential to generate relevant lessons and/or valuable discussions throughout
UN-Women, despite differing views on whether, how and to what extent the organization should engage in
related interventions. At the time of writing, neither UNIFEM nor UN-Women had made efforts to
systematically share or discuss related lessons or their implications for UN-Women’s overall approach to
VAW prevention.
Consulted stakeholders generally felt a number of positive changes had taken place in Grenada before the
period under review which could influence current progress.
Several consulted stakeholders saw an increase in reporting of VAW incidents over the past decade or so,
which they attributed to women’s increasing awareness of their rights and more men reporting VAW
incidents. The evaluation team was not able to access any formal documentation to verify developments in
the numbers of reported cases or on who reported them and was not aware of any national tracking system
for VAW incidents.
Some interviewed individuals remarked on the positive change in the attitude of the police, both in terms of
their behaviour when responding to VAW survivors but also in being less likely to ‘overlook’ VAW
committed by their own colleagues than in the past. While it is impossible to attribute longer-term changes
to any one influence or actor, several consulted stakeholders felt that UN-Women’s continued efforts
around engaging both duty bearers and rights holders, and sharing relevant information on VAW had
contributed to enhancing the visibility of and attention to the issue in Grenada. Stakeholders also noted that
the work of UNIFEM and now UN-Women around the Man-to-Man project was contributing to changes in
public awareness and support for psychosocial interventions, and the need for preventative measures
addressing the root causes of VAW.
Grenada is seen as a leader in VAW legislative reform in the Eastern Caribbean, in particular following the
recent acknowledgement of spousal rape in the criminal code which several other Caribbean countries have
not yet addressed. UN-Women is widely seen to have contributed to enhancing the overall legal and policy
framework for VAW in Grenada through its support to the compilation of the most recent CEDAW
Shadow Report, the SSA project, and its continued collaboration with and support to gender advocates.113
The draft NSAP on GBV in particular is widely seen as an important step towards ensuring that the
government’s commitments to EVAW can be put into practice.
Work related to the intergovernmental/normative dimension of UN-Women’s mandate is carried out
mainly at the global (headquarter) level. The evaluation therefore explored whether and what types of
linkages existed between country-level operational work in Grenada and global-level normative work.
113
The CEDAW Shadow Report (Section 10.2) specifically mentions UN-Women’s funding contributions to the
public and NGO sectors in Grenada, and its role in providing consultants, support and training on women’s and
gender rights and relations.
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Consulted stakeholders
acknowledged the continued
financial and technical support
received from UN-Women and
UNIFEM for, for example, attending
meetings or preparing documents for
around CSW and CEDAW) contribute to informing national
global intergovernmental fora such
processes.
as the Commission on the Status of
Women (CSW) and CEDAW. They also noted how UNIFEM’s financial support had allowed gender
advocates from Grenada to participate in global forums for advancing women’s rights helping them
increase their knowledge and understanding of effective programming, and extending their national
advocacy efforts by providing input to global deliberations.
Both government and NGO stakeholders specifically highlighted UN-Women’s support for developing
Grenada’s first CEDAW report to the 51st Session in 2012. As noted above, funding was provided to write
the NGO Shadow Report which led to government action on legislation pertaining to sexual harassment.
To date, UNIFEM’s and UN-Women’s
most visible contributions to VAWrelated inter-agency coordination in
the region have related to the UNiTE
campaign.
Many stakeholders in Grenada
attended a UNiTE event in November
2012, including the Minister of Social
Development, the Honourable
Sylvester Quarless. While the UNiTE
campaign offers an opportunity to
showcase the United Nations system
response to ending violence against
women and girls as a coordinated and
comprehensive United Nations system
initiative, some consulted stakeholders
noted that the last UNiTE campaign
effort was not presented as such. One
stakeholder claimed that child sexual
abuse had not been sufficiently framed
within the broader context of GBV.
The Caribbean launch of the UNiTE campaign in October 2010 was
attended by government ministers, members of the judiciary,
representatives of government agencies, representatives of the
United Nations and organizations working on GBV. Participants
agreed to the Caribbean UNiTE Consensus, affirming state
obligations to end VAW and stating their support to the goals of the
campaign.114
In the Caribbean, the UNiTE campaign has provided structured
occasions for United Nations entities to jointly plan and implement
VAW-related activities on an annual basis.
Key challenges to inter-agency coordination on VAW, including
through joint programming are: i) the absence of an office of most
United Nations entities in each country; ii) the limited human and
financial resources of the existing offices, and, as a result, iii)
programming tends to focus on short-term interventions and/or oneoff events.
114
Caribbean UNiTE Consensus. Available from
http://www.eclac.cl/mujer/noticias/noticias/5/41145/CaribbeanUNITEConsensus.pdf.
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Overall, consulted stakeholders felt that UNIFEM was, and that UN-Women remains, a reliable partner in
inter-agency ventures but that the United Nations system as a whole needs a more coordinated response to
ending violence against women and girls. Some interviewees suggested that UN-Women should give
priority support to the new Gender Equality Coordination Specialist position in the Caribbean subregional
office but questioned whether
“UN-Women has to be the biggest advocate of joint programming as
coordination was a UN-Women
it’s the only way to infuse ending violence against women and girls,
priority and whether a solid strategy
and women’s equality into development thinking. The coordinator
existed to address coordination
position has to comprise strong dialoguing. Shift in thinking comes
challenges for this position.
from dialoguing. UN-Women needs more capacity to influence. It
needs to move from the marginal to the mainstream.”
United Nations entities other than UNWomen are undertaking interventions
Consulted stakeholder
to end violence against women and
girls. For example, UNICEF supports a fathers’ parenting programme and a programme for boys on
masculine identity. UNICEF and UNFPA also support the LACC’s alternatives programme for youth in
conflict with the law. Stakeholders saw these programmes as opportunities for UN-Women to provide
technical support, strengthen its approach and expand its efforts on working with men.
Several stakeholders recommended UN-Women seek additional strategic entry points for inter-agency
coordination on ending violence against women and girls, such as public security, climate change and
alternative energy development programming.115
The table below summarizes some key factors likely to support or hinder the sustainability of results
achieved to end VAW in Grenada to date.
Dimension
Institutional
response of state
machinery
Supportive Factors
Limiting Factors
There is adequate knowledge, infrastructure and
access to resources to move forward with the
agenda on ending violence against women and
girls.
Grenada has completed its first CEDAW report,
showing a high level of government commitment to
securing women’s equality and to ending violence
against women.
The development of the draft NSAP to end GBV in
Grenada 2012-2017 by the MoSD indicates some
level of state commitment. Its implementation will
be supported by legislative reforms and through
implementation of the UN Trust Fund project State
Response to End Violence Against Women:
Legislative and Policy Reform Implementation
Programme, 2011-2014.
The dominant ideology put forward in the
state response tends to reinforce a
division of labour by gender and gender
inequality and inequity.
As the CEDAW Committee notes, the
Government of Grenada takes its time in
addressing violence against women and
girls. Grenada has yet to sign the CEDAW
Optional Protocol.
The achievement of NSAP goals will
require strong intergovernmental agency
collaboration and commitment and
extensive capacity-building across
sectors.
Institutional changes such as the reform of the
police training curriculum to better address VAW.
115
These last points were also suggested as possible areas for expanding UN-Women’s work on women’s economic
empowerment.
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Dimension
Supportive Factors
Limiting Factors
Coordinated and
informed NGO/CSO
response
The NGO/CSO community is creative and
resourceful.
They have formed close ties with one another to
share resources and ensure stronger intervention
impact. They also work closely with government.
NGO/CSO commitment to ending violence against
women and girls has been maintained as a priority
for a long period of time.
Economic uncertainty and the fragmented
approach of development agencies to
funding make sustained interventions
difficult. Sustainability of results in society
at large is at risk.
Unless the government fulfills its
obligations, the NGO/CSO sector will
continue to struggle to maintain its impact.
This drain on resources means that
initiatives have to be repeated over the
years with very small gains.
Transforming
masculinities
Men are becoming more open to critically
assessing their thinking and behaviour regarding
ending violence against women and girls. There is
now a foundation upon which future work with men
can be based.
Without an institutional shift in
government, gender inequality will persist
in Grenada. Government discourse based
on patriarchal notions of male power in
the social order is an obstacle to
sustainable changes in ideology.
Overall, the existing supporting factors in Grenada create an environment conducive for the continuation
and dynamic adaptation of results achieved to date. Document review and stakeholder consultations alike
emphasized the strong potential inherent in the draft NSAP, but also highlighted the significant challenges
for its operationalization and implementation. While there is considerable commitment and increasing
capacity among national stakeholders – both within and outside of government – continued financial and
technical support will be required to continue and expand achievements made to date, including those
related to the NSAP.
4.3
This section presents evaluation findings on UN-Women’s organizational strengths and weaknesses, and
lessons learned from its predecessor entities in view of planning, implementing, monitoring and evaluating
their EVAW-related work.
Strengths and weaknesses116
some strengths of the UNIFEM
Barbados office team which had
positively influenced its ability and
approach to planning and
implementing VAW-related
interventions during the period under
review.
In the Caribbean, UNIFEM’s successful work in facilitating regional
partnerships has been helped by the comparatively small size of the
region and each of its states, and by the similarities between the
countries’ legal and political systems.
UNIFEM’s status as a United Nations entity allowed it to play a
facilitating role, and contributed to leveraging the status of and
resources for national actors.
Resourcefulness and partnership
building: All stakeholders regarded UNIFEM’s ability to extend its reach despite limited resources a
strength, and noted that it has reached out by building partnerships and maintaining close ties with
stakeholders. UNIFEM’s engagement has helped put mainstream ending violence against women and girls
116
UNIFEM Caribbean Office. Engaging Men as Partners for Gender Equality in the Caribbean. Proposal for Funding to the
Government of Iceland, December 2007.
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onto the agenda of several government agencies. Partners described the former Regional Programme
Director as a driving force for reform.
Increasing visibility and access to resources: Several stakeholders noted that UNIFEM increased the
regional visibility of their partners’ work. NGOs and governmental agencies reported UNIFEM’s support
has increased their credibility and inspired other United Nations entities and donors to support their work.
One interviewee commented that “work with UNIFEM and now UN-Women has given regional visibility to
[our organisation] which has generated more funding [from other sources] and given us leverage” in the
socio-political arena.
Some respondents also noted that, due to this increased visibility, the capacity of their staff improved
through exposure to diverse and complex national and regional work, leading to more integrated and
meaningful national endeavours. One interviewee said UN-Women and UNIFEM had both helped forge
stronger relationships between NGOs.
Strategic interventions and
“Men as Champions of Change” engaged 26 men from a crosssustainability: Several consulted
section of communities and organizations in a two-day workshop.
stakeholders commended UNIFEM
The goal was to create a cadre of men who could effectively engage
for its targeted approach. Specifically,
in public advocacy on ending violence against women and girls, and
the SSA project was seen as an
equip them with tools to manage the issues and challenges they
extremely relevant and strategic
would face as agents of change.117 The intervention never gained
momentum and some beneficiaries reported that there was no
venture that had significant impact
follow-up to sustain participant interest in the programme.
and which supported the national
machinery to end violence against
women and girls in fulfilling its mandate. The Partnership for Peace project was also praised and
stakeholders credited the sustained support received over a critical period of time for the success of the
project. By the time funding was discontinued, the programme had attracted funding from international
donors and the Government of Grenada. Some respondents even suggested that the model might be
replicated in other programmes.
Institutional stability and sustainability: According to some consulted stakeholders, the transition from
UNIFEM to UN-Women has added new layers of bureaucracy. Some stakeholders worry that new
interventions, including the disbursement of funds, will be centralized at the government level. One NGO
respondent felt that funds should not be channelled primarily through the government (as was the tendency
under the SSA project) as “this level of state control may undermine the work of NGOs and result in the
neglect of certain populations.”
An NGO stakeholder noted that access to funding to sustain programmes to end violence against women
and girls is fragmented: when thematic focuses change the funding focus also changes. This hinders impact
and effectiveness of programmes, almost cancelling out previous efforts. Recent staff turnover within UNWomen was also noted as a potential challenge for sustainability due to the close and positive working
relationship that partners had established with the long-term serving staff members.
Short-term, project-based interventions and sustainability: Sustainability was a main concern for the
majority of stakeholders who felt that project-based funding fragmented the approach to ending violence
against women and girls and work on gender equality. While interventions often generated some
momentum, this was not always
sustained due to lack of follow-up.
In an economic livelihood project supported by UNIFEM and
Addressing VAW as a cross-cutting
issue: There was general agreement
that, due to its complexity, VAW
117
Op. cit. 25. p. 12.
implemented by GRENCODA, women participants learned about
violence against women and girls, their rights, and gained computer
and entrepreneurship skills (livelihood projects are often based on
the premise that if women become financially independent they will
be less likely to stay in abusive situations). The participants started
a business raising chickens, but the feed became too expensive and
the business generated was not enough to sustain them.
August 2013
18
needed to be addressed by a variety of approaches and avenues, including by integrating it into
programming which focuses on other aspects of gender equality. Several stakeholders also noted that VAW
in Grenada was closely linked to economic empowerment, since many women stayed in abusive
relationships because they were economically dependent. While UN-Women initiatives on economic
empowerment had made efforts to link the issue with VAW, some stakeholders felt that overall UNWomen’s work in this area could be strengthened and become more innovative. For example, it was noted
that existing programming tended to focus on traditional sectors such as the clothing industry, while not yet
making full use of opportunities related to emerging market in which women could build skills, e.g.
alternative energy/solar technologies.
Monitoring and evaluation (M&E): Stakeholders agreed that M&E needs attention and regretted the lack
of resources to help them engage effectively in these activities. One respondent noted that his organisation
tries to engage in work in the same communities and attempts to chart progress through observation of the
socio-economic conditions of women and girls over time. However, this is not a comprehensive and viable
approach and in order for results to be tracked and sustained, M&E resources have to be provided as part of
project implementation.
Technical support and accessibility: All stakeholders applauded the technical support provided by UNWomen staff and their willingness to assist partners. One stakeholder commented “there is an ongoing
closeness that we have with UN-Women. We have a good sense of each other’s work and this assists in
grounding our own work. We do not feel as isolated.”
National and regional integration of work: Stakeholders appreciate UN-Women’s integrated approach to
ensure partners are included in local, regional and global ventures (e.g. through sharing of resources,
attendance in strategic planning meetings and relevant conferences, consultations and capacity-building
activities). Stakeholders were grateful that UN-Women consistently informs them of important meetings on
CEDAW and CSW, and other activities taking place at the global level. While UN-Women cannot always
support attendance, stakeholders appreciate that it has maintained a comprehensive approach to national
and regional development through a
global grounding.
Capacity-building: Evaluation
respondents noted the contribution of
UN-Women to supporting capacity
UNIFEM provided direct support for capacity-building by sponsoring
development of state and non-state
attendance at the Summer Institute of Gender and Development
actors through provision of key
Studies hosted by the Institute for Gender and Development Studies
at the University of the West Indies Caverhill Campus.
resources; exposure at national,
regional and international meetings;
Several stakeholders noted this as a best practice. Some suggested
and training initiatives. They also
that the service should be extended to the University’s open campus
noted, however, that gender analysis
in Grenada or perhaps through an online option.
must be mainstreamed in the
development process, and that increasing the technical capacity of government agencies and NGOs to do
this themselves is critical. They also expressed a desire to increase local capacity so that fewer outside
consultants will be needed to undertake work related to ending violence against women and girls. As one
respondent commented, “we have to update policies; we need in-house capacity for that. We would like to
increase local expertise and engage in training on mainstreaming gender analysis for the public service.”
Support to survivor services: Stakeholders voiced concern over the lack of investment in survivor
services on the part of UN-Women, particularly shelters for battered women. Mental health services and
access to skills training are also seen as crucial and underfunded. As one stakeholder commented, “women
tolerate violence as a result of economic dependency.”
Limited country presence: Stakeholders noted that the lack of a country presence in Grenada had limited
UNIFEM’s ability to reach out to the public. They pointed to UNICEF as an example of a (larger) United
August 2013
19
Nations entity which, due to its size and country presence, had been able to make deeper inroads into the
state machinery and become a household name.
Most, if not all, of the observations on organizational strengths and weaknesses continue to (positively or
negatively) influence UN-Women’s current work on VAW, as further explored in Section 4.4 below. UNWomen is able to build upon and expand the strong national and regional level networks established by
UNIFEM. Also, UN-Women can build on UNIFEM’s positive reputation for its technical expertise and
professional dedication. At the same time, UNIFEM’s organizational weaknesses have not yet been
effectively addressed and are therefore likely to continue to affect the work of UN-Women. This applies in
particular to the challenges arising from the absence of a country presence and the limited number of staff
dedicated to EVAW work. Moreover, UN-Women will have to continue to rely on ad hoc donor funding,
rather than core funding, which will continue to make it difficult to adopt a programme, rather than projectbased, approach.
4.4
This evaluation question examines the extent to which UN-Women has strategically positioned itself to add
value in preventing and responding to VAW in global, regional and national contexts. 118
UN-Women’s strategic positioning with regards to VAW in Grenada is also influenced by the
organizational strengths and weaknesses outlined in Section 4.3 above, and by the contextual factors noted
in Chapter 2 and other sections of this report.
Contextual factors119
The Caribbean is a complex geopolitical area. Cultural, social and economic factors are similar in member
countries, but gender inequality and the emergence of violence against women and girls vary. Interventions
must be strategic and based on country-specific needs and capacities, especially given the United Nations
system’s current regional approach.
Key contextual factors characterizing work to end violence against women and girls in Grenada include
UN-Women’s limited in-country presence; lack of resources for sustainability of programmes; weak interagency coordination mechanisms; and the current economic insecurity of Caribbean countries,
compounded by their classification as middle-income countries.
The process of defining and operationalizing UN-Women’s overall mandate and defining implications for
VAW-related work in particular is still ‘work in progress’ and both UN-Women staff in the Barbados
office and UN-Women partners in Grenada require further guidance and clarification. Key observations are
outlined below.

Several NGO and United
Nations entity respondents
commented on UN-Women’s
marginal status in the United
Nations system. One
Consulted NGO and United Nations representatives felt that the
status of women’s issues in the wider development agenda was
fragile. They spoke protectively of the entity, worrying that if UNWomen did not emerge strongly in its new entity status, their own
118
on ending
violence
against
womenClinic
and girls,
and women’s
GRENCODA. Institutional Strengthening ofwork
the Grenada
Legal
Aid and
Counseling
- Support
for Psychoequality
would
derail.
Educational Programming. Proposal to UN-Women by GRENCODA on behalf of the LACC programme. 2012.
119
Op. cit. 27.
August 2013
20
stakeholder suggested UN-Women reposition itself closer to the centre of the action at the United
Nations saying “UN-Women walks into a room and then explains why they are there; they need to
walk into the room with the authority to be there and just do what needs to be done.”

Another stakeholder commented “UN-Women [needs to address] its own consciousness of the
complexities of women’s subordination in Grenada” to make interventions more strategic.

NGO stakeholders expressed concern that UN-Women has less contact with government in
Grenada than other United Nations entities. They felt there should be more consistent interaction
with government, regardless of what projects/programmes are being negotiated or are ongoing.

Some NGO stakeholders voiced uncertainty about the future of their relationship with UN-Women.
In the wake of its transition from UNIFEM, key staff have changed including the Regional
Programme Director and a long-serving programme specialist.
There was a general sense from stakeholders that while UN-Women and UNIFEM’s work has been
relevant in Grenada, it needs to be more firmly grounded in a sustainable framework and that to make a
sustained impact, interventions need to be more strategic.
August 2013
21
5.
Recommendations
The following suggestions and recommendations to the UN-Women offices in Barbados and headquarters
are based on the data collected for the country case study.
Strategic question 1: Contributions to results
The UN-Women multi-country office in Barbados should:
21) Support the implementation of the NSAP for GBV: UN-Women should explore how (within
the limitations of its financial and human resources) it can best continue to support the
implementation of the NSAP, e.g. by assisting the MoSD develop a feasible, graded and staged
approach to implementing the strategy and/or monitor its implementation.
22) Encourage and support measures to enhance sustainability of capacity development
initiatives: UN-Women, and national partners (including NGOs and possibly government) may
want to explore whether and how existing opportunities for EVAW-related training and resources
in Grenada could be further strengthened and systematized to ensure consistent quality and
sustainability of interventions. The latter should take into account measures such as the long-term
tracking of participants, and the provision of appropriate follow-up to monitor results and ensure
sustainability.
23) Support and promote collaborative programmes between men’s and women’s organizations:
At the time of this study, GNOW had two male interns specializing in information technology
(IT). This situation exposes men to GNOW’s work, whilst it benefits from free IT services. UNWomen can play a role in sharing related experience and examples of good practice among its
partners to encourage similar efforts of including men in planning and organizing work related to
ending violence against women and girls.
Strategic question 2: Organizational strengths/weaknesses
The UN-Women multi-country office in Barbados and at headquarters should:
24) Enhance systems to report on results and lessons learned: The UN-Women Caribbean office
should strengthen its M&E, and knowledge management capacities so that it can more
systematically capture contributions to results as well as lessons learned. This may, however, not
be possible without additional dedicated financial and human resources, as outlined in
Recommendation 8.
25) Further develop its theories and approaches to prevention of VAW: Given the uniqueness120
of its work with perpetrators of VAW as a strategy for preventing VAW, the Caribbean office
could significantly contribute to shaping UN-Women’s still evolving corporate understanding of
and approaches to preventing VAW. The Caribbean office should be proactive in capturing and
sharing related lessons and successes with key actors (in particular the EVAW section at UNWomen headquarters), and ensure that related considerations are taken into account within internal
strategic planning processes.
26) Maintain accessibility to national partners: UN-Women should safeguard partner relations,
particularly with NGOs and individual resource persons working at the state level. While the
United Nations system is increasingly centralizing country interventions within the state
machinery, this can be detrimental to achieving UN-Women’s goals to end violence against
women and girls, and gender equality in general. Grenadian partners have proven to be reliable
120
Unique within UN-Women.
August 2013
22
and legitimate agents of change with great community and national influence. Direct links with
these partners should continue to be prioritized and maintained in order to continue and build upon
the basis of mutual trust and support established under UNIFEM.
27) Ensure that different staff members’ roles and responsibilities are clearly defined in terms of
UN-Women’s thematic priorities (including for VAW), and that existing capacity gaps (e.g.
available numbers of staff or specific knowledge and skills) are identified and communicated to
key partners.
28) Ensure that the human and financial resources for the Caribbean multi-country office are
aligned with the expanded mandate of UN-Women and are adequate to carry out VAW-related
programming and inter-agency coordination tasks, as well as for strengthening M&E capacities at
the country level.
Strategic question 3: UN-Women’s strategic positioning
29) As soon as feasible, provide and share corporate and/or regional guidance on: i) how to
operationalize UN-Women’s mandate, in particular as regards inter-agency coordination; and ii)
UN-Women’s corporate (and regional) understanding of and approach to addressing/ending
VAW.
UN-Women headquarters and the multi-country office in Barbados should:
30) Proactively shape the UN-Women ‘brand’: As one stakeholder put it, women’s equality work in
Grenada is often met by a sexist attitude. While this attitude reflects the dominant patriarchal
ideology that UN-Women seeks to transform, it also constitutes an honest expression of how its
work is perceived by many. What image can UN-Women put forward to generate a more positive
response? It may be worth exploring the feasibility and potential benefits of developing a targeted
branding strategy for the Caribbean office that makes it distinct and culturally accessible. Related
considerations would be guided by questions such as: What characteristics does UN-Women wish
to embody in the Caribbean in order to have the strongest impact? How can UN-Women be made
accessible to the general population, not just to existing partners? How can the UN-Women
mandate be communicated without garnering habitual, often dismissive responses?
August 2013
23
6.
The following observations made in the context of the Grenada case study deserve particular attention
when comparing the results of all seven country case studies conducted as part of this evaluation, as well as
in compiling the overall synthesis evaluation report:

The particular nature of the Caribbean as a comparatively small geographic (sub)region consisting
of small island states with similar cultural, political and socio-economic contexts;

The strong emphasis given by UN-Women and UNIFEM on working at the (sub)regional level as a
way to use available resources efficiently, and also stimulate (sub)regional dynamics for change;

The emphasis placed on strengthening state accountability for preventing and responding to VAW,
with the development of a NSAP as a key tool for furthering this accountability; and

The various efforts and often creative approaches used for working with men and women, girls and
boys at the community level to positively influence VAW prevention.
The table below summarizes key information from the Grenada country case study which is relevant in
informing the overall evaluation, in particular in view of the evaluation’s objective of elaborating one (or
more) theory/theories of change for UN-Women’s work on EVAW. The information is structured
according to the three dimensions of UN-Women’s mandate.
Dimension
Operational
results logic
UN-Women strategies/Types
of interventions in Grenada
 Support for gender-





 Grenada has enjoyed a high
responsive and human
rights-based capacity
building programmes for
service providers in multiple
sectors.
Ensuring the use of current
information and resources
through up-to-date materials 
to ensure that approaches to
end violence against women
and girls reflect global best
practices.
Ensuring national ownership 
and strengthening national
response to violence against
women and girls through
intergovernmental and NGO
collaboration and
information exchange.

Ensuring regional
cooperation and impact
through regional planning
processes.
Promoting research for
evidence-based
programming.
in organizational policy
development to guide
Implicit assumptions underlying
VAW work in Grenada/Risks
 There is the required level of
success rate with the
Partnership for Peace (Manto-Man) batterer intervention
programme; however, the
results framework does not
adequately capture these
results.

Specific result areas related to
rural women and economic
livelihood interventions would
be useful as these are weak
programmatic areas.

A section documenting
advances in the research
capacity of national
stakeholders on violence

would be very useful.
Partners’ work guided by

CEDAW.
political will to engage in work to
end violence against women and
girls. The impact of such work can
be sustained through
mainstreaming gender analysis
into policies and programmes.
Sustainability of results of
interventions to end violence
against women and girls requires
national ownership of
implemented programmes.
To ensure sustainability of results,
programmes must be relevant
and must work from the ground
up as well as from the top down.
Evidence-based interventions
ensure relevance and promote
state accountability.
National resource persons must
be recognized as advocates for
ending violence against women
and girls, and efforts of NGOs
must be given support and
visibility.
 Approach is accepted as the main
framework for engaging in work to
end violence against women and
girls.
August 2013
24
Dimension
UN-Women strategies/Types
of interventions in Grenada
results logic
VAW work in Grenada/Risks
internal and inter-agency
relations on VAW-related
work and services.
 Supporting prevention by
working with batterers
through the court system.
Inter-agency
coordination
 Mobilizing around the UNiTE  Contribution to enhancing
Normative
 Supporting CEDAW
campaign.
reporting and including
national partners in the
global discourse on ending
violence against women and
girls.
United Nations system
mobilization of activities and
investments to end violence
against women and girls.
 UN-Women’s and national
partners contributions to
regional and global
discussions.
 Challenges in securing continued
participation and financial
contributions from other United
Nations entities for joint VAW
activities under the UNiTE
campaign.
 Limited ownership and shared
understanding of the joint nature
of work related to the UNiTE
campaign.
 The human rights-based
approach.
August 2013
25
Appendix I
Ms. Elaine Henry-Mc-Queen - Senior Programme Officer, Division of Gender and Family Affairs.
Ms. Jacqueline Lorice Pascal, Project Coordinator, Grenada National Organisation of Women (GNOW)
Ms. Jacqueline Sealey Burke, Director, Legal Aid and Counseling Clinic (LACC)
August 2013
27
Appendix II
Evaluation Matrix
Purpose
Approach
CSO focus
interviews or focus
National
Government
interviews
UN-Women
interviews
Observation
UN CMT interviews
Country records
Case Studies
LINES OF INQUIRY
METHODS
√
√
√
√
√
√
√
√
√
with the support of UN-Women’s predecessor entities likely to be sustained
over time?
√
√
√
√
at country level?
√
√
√
√
√
√
√
√
√
√
√
√
August 2013
29
√
CSO focus
interviews or focus
National
Government
interviews
√
UN-Women
interviews
√
UN CMT interviews
Observation
LINES OF INQUIRY
METHODS
Country records
Case Studies
√
√
√
√
√
√
√
√
August 2013
30
Appendix III
Documents Reviewed
UN-Women and UNIFEM documents:
UN-Women, Caribbean Subregional Office (2011). Strategic Note and Annual Workplan 2011.
UN-Women (2010). Strengthening Prevention approaches for Ending Gender-Based Violence in the
Caribbean: Working with Men. December.
UNIFEM Caribbean Office – Barbados (2007). Engaging Men as Partners for Gender Equality in the
Caribbean. Proposal for funding to the Government of Iceland. December.
UNIFEM, Caribbean Office – Barbados (n.d.). Concept note for the Strengthening State Accountability and
Community Action for Ending Gender-based Violence in the Caribbean project.
UN Trust Fund documents
UN-Women (2012). UN Trust Fund’s Active Grants. Excel Database. May.
National documents
Government of Grenada (2012). An Analysis of Homicides in the Grenada 2008-2012.
Government of Grenada (2011). Consideration of Reports Submitted by States Parties Under Article 18 of
the Convention on the Elimination of All Forms of Discrimination: Combined Initial 2nd, 3rd, 4th and 5th
Periodic Reports of States Parties. CEAW/C/GRD/1-5. April.
Government of Grenada (2010). National Domestic Violence and Sexual Abuse Protocol for Grenada
(2010).
Government of Grenada, Ministry of Social Development (2012). Draft National Strategic Action Plan to
Reduce Gender-Based Violence in Grenada 2012 -2017. p. xxiii.
Government of Grenada, Ministry of Social Development (2011). Strengthening State Accountability and
Community Action for Ending Gender-Based Violence in the Caribbean. Final project report. December.
Government of Grenada (n.d.). Criminal Code (1958 Revised Laws of Grenada).
Government of Grenada, Ministry of Social Development (n.d.). Brief on Cedars Home for Abused
Women and their Children.
NGO documents
Inter-Agency Group of Development Organizations (2012). Shadow Report to the 51st Session of the
CEDAW Committee.
Grenada Community Development Agency (GRENCODA) (2012). Institutional Strengthening of the
Grenada Legal Aid and Counseling Clinic - Support for Psycho-Educational Programming. Proposal
submitted to UN-Women on behalf of GRENCODA’s Legal Aid and Counselling Clinic programme.
Other documents
Sookram, Sandra and Patrick Watson (n.d.). The Informal Sector and Gender in the Caribbean: the Case of
Trinidad and Tobago. Available from http://sta.uwi.edu/salises/pubs/workingpapers/18.pdf.
United Nations (1983). General Assembly resolution 38/7. 2 November. Available from
www.un.org/documents/ga/res/38/a38r007.htm.
August 2013
31
United Nations Office on Drugs and Crime (UNODC) and the World Bank (2007). Crime, Violence, and
Development: Trends, Costs, and Policy Options in the Caribbean.
UNFPA (2010). Rapid Assessment of Sexual and Reproductive Health and HIV Policies, Systems and
Services in Grenada. Prepared for the subregional office for OECS and Barbados.
United Nations, CEDAW (2012). Concluding Observations of the Committee on the Elimination of
Discrimination against Women – Grenada. Fifty-first session, 13 February – March 2012.
CEDAW/C/GRD/CO/1-5 Available from http://www2.ohchr.org/english/bodies/cedaw/docs/co/CEDAWC-GRD-CO-1-5.pdf.
Websites
Immigration and Refugee Board of Canada (2011). Grenada: Domestic violence, including legislation, state
protection, and services available to victims (2009- October 2011). GRD103888.E. Available from
http://www.refworld.org/cgi-bin/texis/vtx/rwmain?docid=4ed8d72b2.
International Fund for Agricultural Development (IFAD) (n.d.). Grenada - Income-earning opportunities
for rural youth. Available from http://www.ifad.org/gender/learning/challenges/youth/gr_6_3.htm
Official website of the Government of Grenada. Available from http://www.gov.gd. Also Ministry of Social
Development, Housing and Community Development. Available from
http://www.gov.gd/ministries/social_development.html.
World YWCA – Women Leading Change (2012). Report on Grenada – 51st CEDAW Session. Available
from http://www.worldywca.org/YWCA-News/World-YWCA-and-Member-Associations-News/Report-on-Grenada51st-CEDAW-Session.
The Caribbean NGO Database. Grenada National Organization of Women (GNOW). Available from
http://www.ngocaribbean.org/index.php/grenada-national-organisation-of-women/
August 2013
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Appendix IV
Organisation
Role/Title
Method of Communication
Ministry of Legal Affairs, Foreign
Prime Minister and Minister of Legal
Affairs, National Security Information, Affairs, Foreign Affairs, National
& Public Administration
Security Information, & Public
Administration
Minister of Social Development
Permanent Secretary
Two person interview
Division of Gender and Family
Affairs, Ministry of Social
Development
Senior Programme Officer
Individual and two person interview
Domestic Violence Unit, Ministry of
Social Development
Coordinator
Ministry of Health
Minister
State Accountability Project
Beneficiary Police Officer
Partnership for Peace/Man to Man
Programme, Champions for Change
Beneficiary
Royal Grenada Police Force
Commissioner
Grenada National Organisation of
Women (GNOW)
Project Coordinator
Legal Aid and Counselling (LACC)
Director
Grenada Community Development
Agency (GRENCODA)
General Secretary
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Appendix V
Sample Interview Protocol (for
NGO/CSO Partners)
Interview Guide
CSO Representatives
study. Thank you for agreeing to this interview. This document is intended to be a guide for our discussion,
which I expect will take roughly one hour. All interviews are confidential, in that information you provide
will only be reported in aggregate, summarizing all key informant interviews without attribution to the
sources.
Guiding Questions
1. Your role
EVAW?
2. Relevance
documents
networks etc.
interventions?
entities and why?
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35
Guiding Questions
why?
women and girls;
groups)
programming?
methods.
August 2013
36
Guiding Questions
country]?
actors
on in future?
4.2 In that same timeframe, are there organizational
going forward?
mandate: operational, normative, inter-agency
coordination
Other?
August 2013
37
Appendix VI
1. Strengthening State Accountability and Community Action for Ending Gender-Based Violence in
the Caribbean
The project was funded by UN-Women and supported by the Association of Caribbean Commissioners of
Police (ACCP). It was implemented by the Ministry of Social Development (MoSD) from January 2010 November 2011 and had a budget of $65,000.121
Long-term goal: To end GBV through strengthened and responsive state and civil society actions
Short-term objectives:
i.
Develop multi-sectoral strategic plans to address the protection, prevention and
punishment of sexual and GBV;
ii.
Build competencies of the justice and security sectors, and the non-governmental sector to
respond effectively to GBV;
iii.
Build a monitoring framework to ensure state accountability and end impunity through
civil society-state partnerships; and
iv.
Promote a gender-sensitive, youth-focused social communications strategy on GBV.
The expected outputs of the project were:

A NSAP for GBV;

Baseline report on the justice and security sectors;

Development of complaints and response protocols;

Culturally and age appropriate advocacy materials on GBV targeting school youths, community
spaces and faith-based institutions;

Strengthened technical competencies of police and prosecutors;

Police internship programme;

Trained community-based young women and men in advocacy and peer interventions; and

Network of male advocates trained – Champions for Change.
2. Man-to-Man Batterer Intervention Programme
Starting in 2004, UNIFEM supported efforts to develop a standardised approach to batterer intervention
programmes in the Caribbean. The work built on related efforts of Economic Commission for Latin
America and the Caribbean (ECLAC) and the Canadian International Development Agency (CIDA) who
had agreed that batterer intervention programmes needed to be guided by some basic principles that
included the prioritisation of the safety of the abused and the acknowledgement of accountability and
responsibility by the perpetrator.
UNIFEM convened a regional expert group meeting in 2004, and in 2005, commissioned the Grenada
LACC to implement a Batterer Intervention Pilot Project in Grenada. UNIFEM, supported by a project
expert group then embarked on developing a regional training strategy for Caribbean countries. To this end,
workshops for training of facilitators were initially held in Grenada, St Lucia, and Trinidad and Tobago.
121
Op. cit. 25.
August 2013
39
The programme is a 16 week psycho-educational intervention based on women’s human rights and
perpetrator accountability. A comprehensive programme manual and operational guideline for management
of the programme have been created. Based on the success of the Grenada programme with UNIFEM
support, the regional equivalent of the programme Partnership for Peace – A Violence Prevention
Programme has been extended to Belize, the British Virgin Islands, Jamaica, St. Lucia and Trinidad.122
3) UN Trust Fund: Community Support Network for Women Experiencing GBV, 2007-2010 –
GNOW
Women in Grenada confront huge gaps in response mechanisms to violence. Sexual harassment goes
unchallenged, marital rape is not recognized by law and there are no medical protocols for treating victims
of rape, domestic and sexual violence. The project is helping mobilize community activists to form a
community network of trained volunteers to assist survivors of violence through a process of healing and
empowerment, accessing support services and realizing rights. It is developing national protocols and laws
for treatment of cases of VAW and guidelines for the Ministry of Labour to address sexual harassment in
the workplace. The Domestic Violence Unit within the MoSD and members of the police force have
received training on how to deal with domestic violence, and these efforts will be further strengthened and
advocacy deepened to criminalize marital rape and sexual harassment.
4) UN Trust Fund: State Response to End VAW - Legislative and Policy Reform Implementation
Programme, 2011-2014 – MoSD
This multi-sectoral initiative is led by the MoSD and aims to increase outreach to survivors, improve the
quality of health and justice services, and coordinate systematic data collection to ensure accountability.
The project links and engages police and law enforcement officials, the justice sector, social services,
health personnel, the education system, faith-based organizations, trade unions, women’s organizations and
policy makers. In order to address impunity, the project aims to create a special victims unit in several of
the key state agencies, including the police force.
122
Op. cit. 31.
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Appendix VII
123
August 2013
41
Appendix VIII Implementing the National
Strategic Action Plan
The table below provides an overview of the envisaged roles of different government and non-government
actors as regards the implementation of the recently developed draft NSAP to reduce GBV in Grenada
2012-2017.
Stakeholder Agency
Ministry of Social Development (including the
Domestic Violence Unit within the Division of
Gender and Family Affairs)
Key Roles
 Planning for implementation, M&E of the NSAP
 Programming for victims, witnesses, perpetrators, and others
affected by GBV
 Providing direct social and psychological services
 Providing economic support to victims and their families
 National sensitization and community education
 Advocating, facilitating, coordinating and monitoring for
effective programming by other stakeholders
Ministry of National Security
 Recognition of GBV as a category of crime and adopting
appropriate mechanisms to address it
Royal Grenada Police Force
 Law enforcement, including emergency response, investigation,
charging and prosecution
Ministry of Health and health care facilities
 Health-care services (physical and mental)
 Providing medical and legal responses
Ministry of Education and educational
institutions
 Formal education at all levels, including general education, and
Ministry of Legal Affairs
 Legislative reform
specialized training for pre-service and in-service professionals
 Policies for staff and students
 Ensuring/facilitating justice
Civil society actors, such as NGOs, CBOs, faithbased organizations and the private sector
 Provision of direct social and psychological services
 Advocacy
 National sensitization and community education
 Partnership, engagement and involvement
43
Country Case Study: Guatemala
junio 2013
i
Siglas
ACCD
Catalan Agency for Development Cooperation
ACNUDH
Alto Comisionado de las Naciones Unidas para los Derechos Humanos
AECID
Agencia Española de Cooperación Internacional
AGEM
Agenda Económica de las Mujeres
AMIRF
Asociación de Mujeres para Estudios Feministas
BMZ
Federal Ministry of Economic cooperation and Development (Germany)
CAIMUs
Centros de Apoyo Integral a las Mujeres Sobrevivientes de Violencia
CAT
Comité contra la Tortura
CEDAW
Convención sobre la Eliminación de todas la Formas de Discriminación contra la Mujer
CEH
Comisión de Esclarecimiento Histórico
CICAM
Centro de Investigación, Capacitación y Apoyo a la Mujer
CICIG
Comisión Internacional contra la Impunidad en Guatemala
COCODES
Consejos Comunitarios de Desarrollo
CODEDES
Consejos Departamentales de Desarrollo
CODISRA
Comisión Presidencial contra la Discriminación y el Racismo contra los Pueblos
Indígenas en Guatemala
COMUDES
Consejos Municipales de Desarrollo
CONAPREVI
Coordinadora Nacional para la Prevención de la Violencia Intrafamiliar y contra las
Mujeres
CONAVIGUA Coordinadora Nacional de Viudas de Guatemala
COPAF
Comisión Presidencial para el Abordaje del Femicidio
COPREDEH
Comisión Presidencial Coordinadora de la Política del Ejecutivo en materia de Derechos
Humanos
CSW
Comisión de la Condición Jurídica y Social de la Mujer
DEMI
Defensoría de la Mujer Indígena
EPU
Examen Periódico Universal
EVAW
Eliminate Violence Against Women
EVCM
Eliminación de la violencia contra las mujeres
FIMI
Foro Internacional de Mujeres Indígenas
FLACSO
Facultad Latinoamericana de Ciencias Sociales
F-ODM
Fondo para el logro de los Objetivos de Desarrollo del Milenio
GGM
Grupo Guatemalteco de Mujeres
INACIF
Insituto Nacional de Ciencias Forences
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Siglas
INE
Instituto Nacional de Estadísticas
INSTRAW
El Instituto Internacional de Investigaciones y Capacitación de las Naciones Unidas para
la promoción de la Mujer
IUMUSAC
Instituto Universitario de la Mujer de la Universidad de San Carlos de Guatemala
MAI
Modelo de Atención Integral
MIRMPAZ
Mesa Interinstitucional para la Implementación de las Resoluciones del Consejo de
Seguridad de las Naciones Unidas sobre Mujeres, Paz y Seguridad
MSPAS
Ministerio de Salud Pública y Asistencia Social
MYDEL
Mujer y Desarrollo Local
OMS
Organización Mundial de la Salud
ONU
Organización de las Naciones Unidas
ONU Mujeres
Entidad de la ONU para la Igualdad de Género y el Empoderamiento de la Mujer
OPS
Organización Panamericana de la Salud
PLANOVI
Plan Nacional para la Prevención de la Violencia Intrafamiliar y contra las Mujeres
PMA
Programa Mundial de Alimentos
PNC
Policía Nacional Civil
PNSM
Programa Nacional de Salud Mental
PNUD
Programa de las Naciones Unidas para el Desarrollo
PROPEVI
Programa para la Prevención y Erradicación de la Violencia Intrafamiliar
REDNOVI
Red de la No Violencia contra las Mujeres
SBS
Secretaría de Bienestar Social
SEGEPLAN
Secretaría de Planificación y Programación de la Presidencia
SEPREM
Secretaría Presidencial de la Mujer
SNU
Sistema de las Naciones Unidas
UNAMG
Unión Nacional de Mujeres Guatmaltecas
UNDAF
Marco de Asistencia de las Naciones Unidas para el Desarrollo
UNEG
Grupo de Evaluación de las Naciones Unidas
UNFPA
Fondo de Población de las Naciones Unidas
UNIFEM
Fondo de Desarrollo de las Naciones Unidas para la Mujer
UNTF
Fondo Fiduciario de la ONU para la Eliminación de la Violencia contra las mujeres
URNG
Unidad Revolucionaria Nacional Guatemalteca
VCM
Violencia contra las mujeres
VCMN
Violencia contra las mujeres y las niñas
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Tabla de contenidos
1.
2.
Introducción1
2.1
2.2
2.3
Contexto
4
Contexto regional
4
Contexto guatemalteco
5
Contexto de la ONU y de UNIFEM/ONU Mujeres
11
3.
Perfil del Trabajo de UNIFEM/ONU Mujeres en el Tema de VCMN en
Guatemala (2008-2011) 12
3.1
3.2
3.3
4.
El Marco de las Estrategias Regionales y Sub-regionales 12
La Programación EVCM en Guatemala
12
Coordinación y Colaboración Interagencial 15
Hallazgos sobre las preguntas estratégicas de la Evaluación
17
4.1
Pregunta estratégica # 1: Las contribuciones a los resultados y las Lecciones
aprendidas relacionadas 17
4.1.1
Relevancia del Trabajo de ONU Mujeres según el Contexto
17
4.1.2
El Mandato Operativo de ONU Mujeres
19
4.1.3
El Mandato Intergubernamental y Normativo de ONU Mujeres
28
4.1.4
El Mandato de Coordinación Interagencial de ONU Mujeres 29
4.1.5
Sostenibilidad de los Resultados
31
4.2
Pregunta Estratégica #2: Lecciones aprendidas sobre las Fortalezas y
Debilidades Organizacionales en la Gestión de la EVCM 32
4.3
Pregunta Estratégica #3: El Posicionamiento Estrategico de ONU Mujeres
34
5.
Recomendaciones para ONU Mujeres Guatemala
36
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Figuras
Figura ‎2.1
Figura ‎4.1
Marco institucional para la EVCM
Factores que pueden afectar la sostenibilidad
7
31
Anexos
Anexo I: Términos de Referencia del Estudio de Caso y Matrices de la Evaluación
39
Anexo II: Documentos Revisados 42
Anexo III: Actores y actoras entrevistadas 45
Anexo IV: Grupo Nacional de Referencia
49
Anexo V: Ejemplo de un protocolo de entrevista (para representantes de
organizaciones de la sociedad civil) 50
Anexo VI: Descripción de los Proyectos
52
Anexo VII: Mapeo de Actores trabanjando en el tema de la VCM
56
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1.
Introducción
Antecedentes
Este estudio de caso forma parte de la Evaluación Temática Global de los Aportes de ONU Mujeres a la
Prevención de la Violencia contra las Mujeres y la Expansión del Acceso a los Servicios. Los objetivos de
la evaluación temática son: i) sistematizar los principales resultados y las lecciones aprendidas sobre las
contribuciones aportadas por las cuatro agencias predecesoras124 de ONU Mujeres durante el periodo 20082011 y sobre las cuales ONU Mujeres se ha apoyado para llevar a cabo su trabajo en la prevención de la
violencia contra las mujeres y las niñas (VCMN); ii) analizar qué tan estratégicamente posicionada está
ONU Mujeres para implementar su mandato de trabajo normativo, operativo y de coordinación en el tema
de la violencia contra las mujeres y niñas.125
Este documento sintetiza las principales conclusiones y recomendaciones sobre las lecciones aprendidas
relacionadas con la labor de UNIFEM, agencia predecesora de ONU Mujeres, en la erradicación de la
VCMN en Guatemala, y también con el posicionamiento estratégico de ONU Mujeres sobre este tema.
Metodología
El estudio de caso sobre Guatemala es uno de siete estudios de caso que se llevaron a cabo entre finales de
2012 y principios del 2013 en el contexto de esta evaluación temática. Se estructuró la recopilación de
datos en torno a las tres preguntas estratégicas de la evaluación, que hacen referencia a las lecciones
aprendidas sobre los aportes de UNIFEM/ONU Mujeres en relación a los resultados, las fortalezas y
debilidades de la organización para abordar este tipo de trabajo y al posicionamiento estratégico de ONU
Mujeres de cara al futuro (las tres preguntas se plantean en los Términos de Referencia de la Evaluación,
que se incluye como Anexo I.) El ámbito temporal del estudio es el periodo 2008-2011, pero cuando es
pertinente se consideran también avances producidos en el año 2012, fundamentalmente en lo relacionado
con el análisis del tema de posicionamiento estratégico.
Teoría de cambio. Para guiar esta evaluación temática, el equipo de evaluación, en consulta con un Grupo
de Referencia de ONU Mujeres en la sede en Nueva York126, reconstruyó un modelo lógico de resultados
como un aporte a la posterior elaboración, por parte de ONU Mujeres, de su teoría de cambio para el
trabajo en VCMN. Este modelo se utilizó en el diseño de los protocolos de entrevista y representa la base
analítica de los distintos tipos de iniciativas implementadas en cada país y los resultados que dichas
iniciativas buscan lograr.
Fuentes. Las fuentes utilizadas para el estudio de caso incluyen documentos (ver Anexo II), entrevistas en
persona (individuales y grupales), visitas de observación, así como conversatorios que se realizaron
durante la visita a Guatemala del 7 al 14 de enero de 2013.127 En total se consultó a más de 140 personas,
incluyendo a funcionarias de ONU Mujeres y a representantes de otras agencias de las Naciones Unidas,
instituciones gubernamentales y organizaciones de la sociedad civil. Debido al cambio de gobierno en
124
La División para el Adelanto de la Mujer (DAW), El Instituto Internacional de Investigaciones y Capacitación de las Naciones
Unidas para la promoción de la Mujer (UN- INSTRAW), el Fondo de Desarrollo de las Naciones Unidas para la Mujer (UNIFEM),
y la Oficina del Asesor Especial del Secretario General en cuestiones de Género y Adelanto de la Mujer (OSAGI).
125
Para más información sobre los objetivos de la evaluación y la metodología, favor de consultar el Informe final de iniciación
para la evaluación (noviembre de 2012).
126
El Grupo de Referencia fue identificado por la Oficina de Evaluación e incluye representantes de diferentes
divisiones e iniciativas de ONU Mujeres que trabajan sobre el tema de VCM desde la sede en Nueva York.
127
Las personas entrevistadas fueron identificadas por la oficina de ONU Mujeres en Guatemala, con el criterio
fundamental de contar con personas con conocimiento sobre el trabajo realizado en la temática de EVCM y contar
con distintas perspectivas sobre ese trabajo.
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Guatemala128, también fueron entrevistadas ex funcionarias que trabajaban para el gobierno durante el
periodo 2008-2011. Del mismo modo se realizaron entrevistas a representantes de los gobiernos locales de
las municipalidades de Mixco, Guatemala y de las Autoridades Ancestrales de los 48 cantones de
Totonicapán. Así mismo, se realizaron consultas con 15 mujeres y 2 hombres129 de la comunidad de
Sacanillá y con integrantes del equipo técnico y administrativo del Centro de Apoyo Integral para Mujeres
Sobrevivientes de Violencia “Ak ‘ Yu’ Am” en Cobán, Alta Verapaz. En la zona metropolitana, se
pudieron conocer las perspectivas de mujeres en la comunidad de Santa Faz, Zona 18 y la Casa de la Mujer.
La agenda de entrevistas permitió recabar las perspectivas de mujeres, cuyas voces son particularmente
importantes para ONU Mujeres.
El listado de las personas entrevistadas se encuentra en el Anexo III.130 En Guatemala, también se contó
con el apoyo de un Grupo Nacional de Referencia para este estudio de caso y sus integrantes se presentan
en el Anexo IV. El Anexo V incluye un ejemplo de protocolo de entrevistas para las organizaciones de la
sociedad civil; los protocolos para las otras categorías de actores entrevistados eran semejantes, solo hubo
algunos ajustes en función de las distintas categorías de actores entrevistados. El Anexo VI presenta
información sintetizada sobre los proyectos relacionados con el tema VCMN que fueron considerados en el
marco de este estudio de caso, y el Anexo VII presenta un mapeo de los actores principales involucrados en
la implementación de estos proyectos.
Ética del proceso. El proceso llevado a cabo en este estudio de caso se alineó con el plan de evaluación, el
Marco de Evaluación de UNEG, y los requerimientos de ONU Mujeres. Se garantiza la confidencialidad de
la información provista y los compromisos sobre el uso de tal, conforme la normativa general para este tipo
de investigación.
Limitaciones La metodología propuesta para el estudio de caso tuvo serias limitantes debido a:

La oficina de UNIFEM en Guatemala era una Oficina de Programa que dependía de la Oficina
Subregional de UNIFEM para México, Centroamérica, Cuba y República Dominicana con sede
en México. Parte de la gestión de la Oficina de Programas de Guatemala y la información sobre
proyectos y aspectos financieros se canalizaba a través de esa Oficina Subregional. En Guatemala
se operaba sin un marco estratégico de país propio, a través de los distintos proyectos
implementados en el país, la mayoría de los cuales eran regionales.

Para el periodo que se considera en este estudio de caso (2008-2011), si bien existe diferentes tipos
de informaciones puntuales hay una escasez de sistematización de la información (incluyendo
aspectos financieros) sobre las diferentes iniciativas en el tema de la EVCMN implementadas en
Guatemala.

Hay una ausencia institucional de sistemas de monitoreo y de gestión del conocimiento que
permita evidenciar los avances en los procesos (más allá de proyectos puntuales) que apoyó
UNIFEM/ONU Mujeres a lo largo de estos años. La memoria institucional reside en las personas
que han trabajado en la oficina.
128
Otto Pérez Molina llegó al poder en enero de 2012, reemplazando a Álvaro Colom, que fue Presidente de Guatemala entre 2008
y 2012.
129
Estas personas fueron identificadas por la lideresa y principal contacto para el programa “Comunidades Libres de Violencia.”
Siguiendo los protocolos establecidos por ONU Mujeres, no se revelan los nombres de las personas entrevistadas para
salvaguardar su confidencialidad.
130
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
La ausencia de una estrategia unificada de trabajo y de elaboración de informes sobre el conjunto
de trabajo de UNIFEM/ONU Mujeres, en general y en especial en esta área temática fue otra
limitación. Durante ese periodo, se trabajaba el tema como parte de proyectos específicos. En 2011
se elabora la primera estrategia bianual de país para 2012-2013 y se define el trabajo en el marco de
dos áreas - Paz y Seguridad y Empoderamiento Económico-. El trabajo en EVCM se ha reportado
en informes a la sede bajo el área temática de Paz y Seguridad.
El presente informe recoge los logros obtenidos por ONU Mujeres en Guatemala en el ámbito EVCM que
pudieron ser constatados por el equipo de evaluación. Conviene mencionar que, a pesar de que se contó con
el apoyo del personal de la oficina para intentar reconstruir la memoria institucional y un mapeo de las
distintas iniciativas y los actores clave, fue difícil allegar a procesos, identificar los aportes específicos a los
logros y resultados alcanzados en el trabajo de VCMN durante el periodo 2008-2011.
Estructura del Estudio de Caso
Este estudio de caso está estructurado en cinco secciones. La sección 1 ofrece una introducción. La sección
2 incluye un resumen del contexto en el cual UNIFEM/ONU Mujeres ha trabajado durante el periodo 20082011. La sección 3 presenta la programación de UNIFEM/ONU Mujeres en el tema de la VCMN durante
este periodo. La sección 4 presenta los hallazgos de la evaluación en relación con las tres preguntas
estratégicas. La sección 5 incluye algunas recomendaciones para ONU Mujeres que resultaron del estudio
de caso en Guatemala.
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2.
2.1
Contexto
Contexto regional
Todos los países centroamericanos son países de ingresos medios-bajos, salvo Panamá, que está clasificado
como un país de ingresos medios-altos.131 A pesar de que el índice de pobreza en todos los países
centroamericanos ha disminuido de forma significativa en las últimas dos décadas,132 el porcentaje de la
población que vive bajo la línea de pobreza sigue siendo sumamente alto.133 El porcentaje de la población
que vive con menos de US$ 1.25 por día es de 16.9 por ciento en Guatemala y de 23.3 para Honduras, en
comparación con el 0.7 por ciento en el caso de Costa Rica.134
Debido a su ubicación estratégica, Centroamérica es un punto crítico para el tráfico de personas y drogas.
Esto, combinado con el fácil acceso a las armas, a la existencia de pandillas y a la ausencia de un sistema
de sólido, ha fomentado altos niveles de violencia, particularmente en El Salvador, Guatemala y
Honduras.135 Los índices de homicidio para estos tres países figuran entre los más altos del mundo: 69.2,
38.5 y 91.6 por cada 100,000 habitantes respectivamente.136
El informe Crime and Violence in Central America: A Development Challenge revela que el 60 por ciento
de las víctimas de homicidios en Centroamérica son hombres entre 15 y 34 años de edad. 137 Aunque la
mayor parte de las víctimas de violencia en la región son hombres jóvenes, no se puede ignorar el alto nivel
de violencia basada en género. La violencia sexual contra las mujeres y las niñas, así como la falta de
acceso a los mecanismos de justicia, representa un problema social de gran envergadura.138
Las mujeres centroamericanas también son víctimas de discriminación social y económica. En términos de
desigualdad de los ingresos percibidos por mujeres y hombres, el estudio Advancing Gender Equality in the
Context of Decent Work, realizado por la Comisión Interamericana de Mujeres en el 2011, revela que en
Centroamérica los salarios de las mujeres son sistemáticamente inferiores a los de sus contrapartes
masculinas. Además, debido al bajo nivel educativo, muchas de ellas deben recurrir al sector informal para
buscar trabajo, el cual ofrece menos beneficios y seguridad económica.139 En cuanto a la participación
política, la representación de las mujeres en el parlamento sigue siendo baja (menos de 20 por ciento) en
todos los países centroamericanos, menos en Costa Rica, donde las mujeres ocupan el 39 por ciento de los
escaños.140
131
Banco Mundial. List of Economies 2012. http://siteresources.worldbank.org/DATASTATISTICS/Resources/CLASS.XLS
Consultado el 7 de diciembre de 2012.
132
Para más amplios datos sobre la disminución de la pobreza en Centroamérica, favor de consultar: CEPAL. 2013. “Panorama
Social de América Latina 2012”, Anexos Estadísticos en Formato Excel: Cuadro 4 – Magnitud de la Pobreza y la Indigencia, 19902011.
133
Ibid. Costa Rica – 18.8 % (2011); El Salvador – 46.6 % (2010); Guatemala – 54.8 % (2006); Honduras – 67.4 % (2010);
Nicaragua – 58.3 % (2009); Panamá – 25.3 % (2011).
134
PNUD. “Índice de Pobreza multidimensional” Índice de Desarrollo Humano 2011: Anexos Estadísticos, Cuadro 5.
135
Banco Mundial LAC. 2011. “Crime and Violence in Central America: A Development Challenge”: p. ii-iii; UNODC. 2012.
“Trafficking of Women and Girls in Central America” en Transnational and Organized Crime in Central America and the
Caribbean: p. 53-57.
136
UNODC. “Intentional homicide, count and rate per 100,000 population (1995-2011)” Estadísticas sobre los homicidios
http://www.unodc.org/unodc/en/data-and-analysis/homicide.html Consultados el 5 de marzo del 2013.
137
Banco Mundial LAC. 2011. Opt Cit: p. 3.
138
Comisión Interamericana de Derechos Humanos. 2011. “Access to Justice for Women Victims of Sexual Violence in
Mesoamerica”. Organización de los Estados Americanos, San José.
139
Comision Interamericana de Mujeres. 2011. “Advancing Gender Equality in the Context of Decent Work”. Organización de los
Estados Americanos, Washington, DC.
140
PNUD. “Índice de Desigualdad de Género e indicadores relacionados”. Índice de Desarrollo Humano 2011: Anexos
Estadisticos, Cuadro 4.
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2.2
Contexto guatemalteco
Guatemala ocupa el lugar 133 (de 187 países) en el Índice de Desarrollo Humanos 2012. El 17 por ciento
de su población vive con menos de US$ 1.25 por día y, tal y como lo refleja el coeficiente de Gini para este
país (53.7)141, el nivel de desigualdad de los ingresos es sumamente alto. La riqueza se concentra
principalmente en los estratos socioeconómicos más altos y las personas que pertenecen a estos estratos
poseen la mayor parte de las tierras cultivables del país. El nivel de pobreza es considerablemente más alto
entre las poblaciones indígenas que viven en zonas rurales.142 En cuanto a la igualdad entre los géneros,
Guatemala se posiciona en el rango 109 (de 146 países) en el Índice de Desigualdad de Género (IDG).
Solamente el 48 por ciento de las mujeres trabajan en el sector formal de la economía, en comparación con
el 88 por ciento en el caso de los hombres.
En comparación a otros países latinoamericanos, Guatemala cuenta con una elevada tasa de mortalidad
materna (139 por cada 100,000 nacimientos), lo que puede ser explicado en parte por el hecho de que
solamente la mitad de los partos se realizan con la ayuda de un profesional.143
Guatemala es un país multiétnico y pluricultural,144 en el que conviven 22 etnias de origen maya, cuatro
pueblos: garífuna, xinca, maya, mestizos o ladinos.145 A pesar de que constitucionalmente se reconoce el
principio de igualdad “subsiste una exclusión de hecho de los pueblos indígenas en las esferas de lo social,
político y cultural”146 y económica, aún cuando representan el 60% de la población del país.147
Como queda reflejado en su informe de actividades en Guatemala, durante 2011 la Alta Comisionada de las
Naciones Unidas para los Derechos Humanos afirmó: “La gran disparidad de los indicadores sociales entre
la población indígena y no indígena revela patrones de discriminación que comprometen el cumplimiento
de la obligación internacional del Estado de asegurar una protección y desarrollo adecuados, como el
disfrute pleno y equitativo de los derechos humanos. Los departamentos de mayoría indígena registran los
índices más altos de pobreza (74,8%) y extrema pobreza (27,2%). En Alta Verapaz y Quiché, ambos de
mayoría indígena, las tasas de matriculación y finalización de primaria son las más bajas y subsiste una
enorme brecha por origen étnico en relación a la tasa de alfabetismo entre indígenas (59,6%) y no indígenas
(83,4%)”.148
En la actualidad persiste una marcada desigualdad de género en la participación política, reflejada en el
bajo número de mujeres que ocupan cargos públicos, sobre todo en los puestos de toma de decisión
(solamente el 12 por ciento de las curules parlamentarias están ocupadas por mujeres). El Estado
guatemalteco no fomenta políticas públicas que generen reformas al interior de los partidos políticos ni la
participación real y efectiva de las mujeres en los Consejos Comunitarios de Desarrollo (COCODES),
Consejos municipales de desarrollo (COMUDES), Consejos Departamentales de Desarrollo (CODEDES) y
las Oficinas Municipales de las Mujeres a nivel rural, en las cuales de manera nominal las mujeres tienen la
141
Según el Índice de Desarrollo Humano ajustado por la Desigualdad, el 0 representas igualdad absoluta mientras 100 representa
desigualdad absoluta.
142
Consejo de Derechos Humanos. 2010. “Informe del Relator Especial sobre el derecho a la alimentación, Sr. Olivier De Schutter:
Misión a Guatemala”, periodo de sesión número 13, informe no. A/HRC/13/33/Add.4.
143
PNUD. “Estudio Nacional de Mortalidad Materna”. Tercer Informe Nacional de Avance de los Objetivos de Desarrollo del
Milenio. 2010
144
Corte Constitucional. Opinión consultiva, emitida por solicitud del Congreso de la República, Gaceta No. 37, expediente No.
199-95, página No. 9, resolución: 18-05-95. Art. 66 Constitución Política de Guatemala.
145 “Guatemala es un país pluricultural (por la diversidad de culturas que lo habitan); multilingüe (por los 25 idiomas que de
hablan); multiétnico (por sus 25 etnias). En los Acuerdos de Paz, se reconoce que en el país, cohabitan 4 culturas (Maya,
Garífuna, Xinka y Ladino o mestizo)”. En http://www.segeplan.gob.gt/index2.php?option=com_content&do_pdf=1&id=85
Consultado 7 de marzo de 2013.
146
ACNUDH. 2012. “Informe de la Alta Comisionada de las Naciones Unidas para los Derechos Humanos sobre las actividades de
su oficina en Guatemala” Presentado al Consejo de Derechos Humanos durante el periodo de sesión número 19, Informe no.
A/HRC/19/21/Add. Párrafo 52.
147
Ibídem.
148
Ibídem, párr. 53.
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5
oportunidad de participar, pero no se brindan oportunidades reales de participación por parte de las
autoridades locales.
El conflicto armado en Guatemala, terminó formalmente el 1996 con la firma del Acuerdo de Paz Firme y
Duradera, entre el gobierno y la Unidad Revolucionaria Nacional Guatemalteca (URNG). Como
consecuencia del conflicto murieron más de 150,000 personas y 50,000 figuran como desaparecidas.
Dieciséis años después de la entrada en vigor de los Acuerdos, aún existe una cultura de violencia en
Guatemala, país cuya tasa de homicidios es de las más altas en todo el mundo (38.5 por cada 100,000
habitantes).149
La Comisión de Esclarecimiento
Histórico (CEH), reconociendo
que “las cifras de violación
sexual, muestran un subregistro
en relación con otras violaciones
de derechos humanos”, registró
1,465 hechos de violación
sexual, de los cuales pudo
documentar 285 casos. Este tipo
de violencia estuvo dirigida en
un 99% de los casos contra
mujeres, y en su gran mayoría,
contra mujeres indígenas (80%),
quienes han tenido obstáculos
reales en el acceso a la justicia y
a la reparación.
Leyes y políticas relevantes en materia de Eliminación de la
VCMN
Ley para Prevenir, sancionar y erradicar la violencia intrafamiliar
(Decreto 97-1996)
Reglamento de la ley para prevenir, sancionar y erradicar la
violencia intrafamiliar (Acuerdo Gubernativo No.831-2000)
Ley contra el Femicidio y otras formas de violencia contra la mujer
(Decreto 22-2008)
Ley contra la violencia sexual, explotación y trata de personas
(Decreto 9-2009)
Plan Nacional para la Prevención de la Violencia Intrafamiliar y
contra las Mujeres 2004-2014 – PLANOVI
Plan de Equidad de Oportunidades 2008-2023 en la planificación y
presupuestos de las instituciones estatales a nivel nacional y local.
Política Nacional de Promoción y Desarrollo Integral de las mujeres.
Decreto 54-2010 Reforma al Art. 24 de Presupuesto Nacional con
La Procuraduría de Derechos
enfoque de Género y Etnia. Informes de ejecución presupuestaria
Humanos de Guatemala afirma
de acuerdo al Clasificador con enfoque de Género
que entre 2008 y 2011 en
Decreto28-2010 Comisión de la Mujer, Congreso de la República
Guatemala se registraron 2.733
de Guatemala. El Objeto de la ley es regular el funcionamiento del
casos de homicidios de mujeres,
Sistema de alerta Alba Keneth, para la localización y resguardo
el 14 por ciento de las cuales
inmediato de niños y niñas sustraídos/as o desaparecidos.
fueron niñas menores de
150
dieciocho años. Durante el
mismo período de tiempo, el
Poder Judicial registró 223.565 casos de violencia intrafamiliar151 y 11.594 casos de violencia sexual152
contra mujeres y niñas. El Comité contra la Tortura (CAT) expresó su profunda preocupación por el hecho
de que muchas mujeres víctimas de femicidio también sufren violación sexual, tortura y desmembramiento
antes de ser asesinadas.153 Según la Comisión Presidencial para el Abordaje del Femicidio, el INACIF ha
reportado 2,913 muertes violentas de mujeres del 2008 al 2011.154
149
UNODC. “Intentional homicide, count and rate per 100,000 population (1995-2011)” Estadísticas sobre los homicidios
http://www.unodc.org/unodc/en/data-and-analysis/homicide.html Consultados el 11 de diciembre del 2012.
150
Procurador de los derechos humanos. 2012. “Estadísticas sobre homicidios contra la mujer: De enero a diciembre 2007-2011”.
Guatemala.
151
Procurador de los Derechos Humanos. 2012 “Situación de los Derechos Humanos en Guatemala” Presentado a la Comisión
Interamericana de Derechos Humanos durante su periodo de sesión número 146, Guatemala.
152
Procurador de los Derechos Humanos. 2012. “Violencia Sexual en Contra de Niñas, Adolescentes y Mujeres en Guatemala”
Presentado al Relator Especial sobre la venta de niños, la prostitución infantil y la utilización de niños en la pornografía:
Guatemala.
153
CAT. 2006. “Conclusiones y recomendaciones del Comité contra la Tortura”. Sesión 36, Informe no. CAT/C/GTM/CO/4.
154
537 en 2008; 829 en 2009; 842 en 2010 y 705 en 2011.
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6
El Gobierno de Guatemala ha reconocido la urgencia de abordar la problemática de la violencia contra las
mujeres. Ha ratificado los principales instrumentos internacionales relacionados con los derechos de las
mujeres, como la Convención sobre la Eliminación de todas las Formas de Discriminación contra la Mujer
(CEDAW) y su Protocolo Facultativo, así como la Convención de Belem do Pará para Prevenir, Sancionar
y Erradicar la Violencia contra la Mujer y el Protocolo de Palermo sobre la trata de personas, además de ser
parte de otros instrumentos internacionales de derechos humanos. El gobierno también ha expresado su
compromiso con la Declaración de Beijing y su Plataforma de Acción.
Guatemala ha hecho importantes esfuerzos para adaptar su marco jurídico nacional a los compromisos
internacionales en materia de violencia contra las mujeres. En 2004 se aprobó el Plan Nacional para la
Prevención de la Violencia Intrafamiliar y contra las Mujeres (PLANOVI) para el período 2004-2014,
que destaca cuatro áreas de enfoque con respecto a la violencia contra las mujeres: la investigación, la
prevención, el apoyo a las sobrevivientes y la creación de capacidades institucionales.
El país también adoptó en 2008 la Política Nacional para el Desarrollo Integral de la Mujer y el Plan de
Equidad de Oportunidades, que incluye un eje temático sobre violencia contra las mujeres. En ese mismo
año se aprobó también la Ley contra el Femicidio y otras Formas de Violencia contra la Mujer la cual
tipificó penalmente el asesinato de mujeres por razones de género (femicidio). Con el objetivo de promover
el acceso a la justicia para las mujeres víctimas de la violencia, el Gobierno de Guatemala emitió la Orden
Nº 46-2012 que crea la Comisión Presidencial para el Abordaje del Femicidio.155 A pesar de estos
avances normativos el número de femicidios ha ido en aumento,156 pasando de 590 en 2007 a 631 en
2011,157 lo cual evidencia el inmeso trabajo que aún queda por hacer respecto a la aplicación de la ley.
En cuanto a la violencia sexual, en 2009 fue aprobada la ley contra la Violencia Sexual, Explotación y
Trata de Personas y se creó la Secretaría contra la Violencia Sexual, Explotación y Trata de Personas.158 En
2012 se creó la Comisión Interinstitucional contra la Violencia Sexual, la cual es responsable de la
legislación, la investigación y sanción, así como los procedimientos judiciales de casos de violencia sexual.
(Ver recuadro para el marco normativo completo sobre violencia contra las mujeres).
Guatemala cuenta con un importante marco institucional que aborda el tema de violencia contra las
mujeres, el cual se describe brevemente a continuación.
Figura 2.1
Marco institucional para la EVCM
Entidad
Gabinete de la Mujer
Creación
Acuerdo Gubernativo 264-2012
de octubre del 2012
Mandato
Coordinar, articular e impulsar las acciones
interinstitucionales para la implementación de planes,
políticas públicas, programas y proyectos enfocados al
desarrollo integral de la mujer guatemalteca y velar por el
cumplimiento de la Política Nacional de Promoción y
Desarrollo Integral de las Mujeres y el Plan de Equidad de
Oportunidades.
155
Gobierno de Guatemala. 2012. “Informe nacional presentado con arreglo al párrafo 5 del anexo de la resolución 16/21 del
Consejo de Derechos Humanos: Guatemala” Presentado al Consejo de Derechos Humanos durante el periodo de sesión número 14
sobre el Examen Periódico Universal.
156
ACNUDH. 2012. “Informe de la Alta Comisionada de las Naciones Unidas para los Derechos Humanos sobre las actividades de
su oficina en Guatemala” Presentado al Consejo de Derechos Humanos durante el periodo de sesión número 19, Informe no.
A/HRC/19/21/Add.
157
Procurador de los derechos humanos. 2012. “Estadísticas sobre homicidios contra la mujer: De enero a diciembre 2007-2011”.
Guatemala.
158
Decreto 9-2009, Título II, art. 4.
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7
Entidad
Creación
Mandato
Secretaría
Presidencial de la
Mujer (SEPREM)
La SEPREM, creada en 2000, es
el mecanismo principal de la
Mujer en Guatemala. Fue
creada mediante el acuerdo
Gubernativo 200-2000.
Es la instancia del Ejecutivo, que asesora y coordinadora
políticas públicas para promover el desarrollo integral de
las mujeres guatemaltecas y el fomento de la cultura
democrática. Asesora y apoya al Presidente de la
República en los programas y proyectos para la
promoción y adopción de las políticas públicas inherentes
al desarrollo integral de las mujeres, propiciando los
efectos y condiciones de equidad entre hombres y
mujeres, atendiendo a la diversidad socio cultural del
159
país.
Defensoría de la
Mujer Indígena
(DEMI)
Creada mediante Acuerdo
Gubernativo no. 525-99 el 19 de
julio de 1999
Defender y promover el pleno ejercicio de los derechos de
las mujeres indígenas, para contribuir a la erradicación
de todas las formas de violencia y discriminación contra
160
la mujer indígena.
Comisión
Presidencial para el
Abordaje del
Femicidio (COPAF)
Creada el 9 de marzo de 2012
mediante el Acuerdo Gubernativo
46-2012 de Ministerio de
Gobernación.
Estudiar, analizar y determinar las causas del femicidio en
Guatemala y recomendar políticas, estrategias,
programas, planes y proyectos para prevenir, atender,
161
sancionar y disminuir los femicidios en Guatemala.
Comisión de la Mujer
en el Congreso
La Comisión constituye un órgano
técnico de estudio y conocimiento
de los diversos asuntos que les
someta a consideración el Pleno
del Congreso de la República, o
que sean promovidas por su
propia voluntad, encaminados
esencialmente a la realización del
bien común de los
guatemaltecos, en cumplimiento
al mandato constitucional.
Es la Comisión que promueve una agenda legislativa en
162
pro de los derechos de las mujeres. Además, le
compete la fiscalización de los mecanismos e
instrumentos de protección a favor de la mujer.
Coordinadora
Nacional para la
Prevención de la
Violencia
Intrafamiliar y contra
las Mujeres
(CONAPREVI)
Creada por el Acuerdo
Gubernativo 831-2000,
Reglamento de la Ley
para
prevenir, sancionar y erradicar la
violencia intrafamiliar y el
Acuerdo Gubernativo 417-2003
que lo reforma.
La Comisión está conformada por
una serie de entidades
gubernamentales y no
gubernamentales que trabajan el
tema de violencia contra las
mujeres y que tiene como
objetivo fortalecer las
capacidades institucionales y de
sensibilización de la problemática
de la violencia contra la mujer.
Coordinó la elaboración del Plan
Nacional para la Prevención de la
Violencia Intrafamiliar y contra las
Mujeres 2004-2014 (PLANOVI)
Es el ente coordinador, asesor e impulsor de las políticas
públicas dirigidas a prevenir, atender, sancionar y
erradicar la violencia intrafamiliar y contra las mujeres.
La Conaprevi trabajó en el diseño,impulso e
implementación del PLANOVI.
159
En http://www.seprem.gob.gt/site.php?id=1 Consultada el 5 de marzo de 2013.
En http://demi.gob.gt/paginas.asp?id=1299&clc=249 Consultada el 5 de marzo de 2013.
161
Acuerdo Gubernativo 46-2012. En Diario de Centro América, No. 8, 13 de marzo de 2012 y en
http://www.s21.com.gt/nacionales/2012/03/13/crean-comision-que-abordara-femicidio Consultado el 5 marzo de 2013.
162
En http://www.congreso.gob.gt/comision.php?id=11 Consultado el 5 marzo de 2013.
160
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Entidad
Creación
Mandato
Secretaria contra la
violencia sexual,
explotación y trata
de personas
Creada por la Ley Contra la
Violencia Sexual, Explotación
y Trata de Personas, Decreto
Número 9-2009
Es la responsable de velar y dar cumplimiento a la Ley
contra la violencia sexual, explotación y trata de
personas, a políticas y planes relacionados con la misma,
163
con el propósito de garantizar su aplicación.
Oficinas Municipales
de la Mujer
Decreto 22-2010, en el que se
aprueba la incorporación de las
Oficinas Municipales de la Mujer
en el Artículo 96 Bis de este
Código.
Las OMM se constituyen en el mecanismo para el avance
de las mujeres, dentro de la estructura municipal;
facilitando el vínculo entre las demandas, necesidades y
propuestas de las mujeres con las decisiones municipales
y con el diseño e implementación de políticas públicas
con equidad de género y ejercicio pleno de los derechos
164
de las mujeres.
Otras Secretarías y Ministerios que también contribuyen a la agenda para EVCMN
Ministerio de Salud Pública y Asistencia Social (MSPAS), a través de su Programa Nacional de Salud Mental (PNSM)
y de la Unidad de Género.
La Secretaría de Bienestar Social (SBS), a través de su Programa para la Prevención y Erradicación de la Violencia
Intrafamiliar (PROPEVI)
Ministerio Público
Ministerio de Gobernación
Ministerio de Educación
Mecanismos en otros poderes del Estado
Los organos juridisccionales especializados en femicidio y otras formas de violencia contra las mujeres y la Secretaría
de Género del Organismo Judicial
A pesar de la existencia de este complejo entramado institucional, algunas de las personas entrevistadas,
manifestaron que muchas de estas instituciones tienen mandatos dispersos por lo cual, en ocasiones, no se
tienen claras las competencias de cada instutición.
Una constante en las entrevistas con todos los actores claves fue su preocupación por la actual debilidad de
esta institucionalidad. Por un lado, se reconoce que la institucionalidad de las mujeres ha sido frágil desde
su inicio puesto que no fue creada a través de decreto del Congreso, sino por Acuerdo Presidencial, por lo
que el riesgo de desaparecer o debilitarse ha estado presente durante todos los gobiernos. Así mismo, en su
Informe de Actividades, la Alta Comisionada de Naciones Unidas reitera que “la organización estructural
del Estado no está diseñada para atender la dimensión pluricultural y multilingüe de su población.
Instituciones gubernamentales aisladas con mandatos específicos para la atención a las violaciones de los
derechos humanos de las mujeres de los pueblos indígenas, como la Defensoría de la Mujer Indígena
(DEMI), han desarrollado sus funciones sin los adecuados recursos financieros, poder político, presencia
regional e independencia.”165
Guatemala posee una variada red de prestación de servicios para las mujeres víctimas de violencia: La
Coordinación Nacional de Asistencia Legal a la Víctima y sus Familiares del Instituto de la Defensa
Pública y Penal; los Centros de Apoyo Integral para la Mujer Sobreviviente (CAIMUS)166 a los cuales el
Estado debe garantizar los recursos financieros, humanos y materiales para su funcionamiento y que son
administrados por Organizaciones no Gubernamentales de mujeres, acompañadas por la CONAPREVI y
163
Decreto 9-2009. Ley Contra la Violencia Sexual, Explotación y Trata de Personas.
164
http://ommguatemala.org/v1/que-es-una-omm (Consultada el 8 de marzo)
Ibídem. Párr. 54
166
Decreto 22-2008. Ley contra el femicidio y otras formas de violencia. Art,. 16.
165
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9
los Centros de Atención Integral, las cuales pertenecen a la Red de Derivación; las Oficinas de Atención
Integral a la Víctima,167 y el reciente Modelo de Atención Integral (MAI168), así como las Fiscalías de la
Mujer del Ministerio Público.
Adicionalmente, el Organismo Judicial, en cumplimiento con la Ley contra el Femicidio, ha instalado el
centro de justicia especializada en femicidio y otras formas de violencia contra las mujeres de la ciudad de
Guatemala, que aglutina juzgados pluripersonales especializados de primera y segunda instancia penal, y
los órganos jurisdiccionales de Alta Verapaz, Chiquimula, Huehuetenango y Quetzaltenango.
Aunque esta red existe, varias instancias son de creación reciente y según algunas de las personas
entrevistadas todavía existen problemas de accesibilidad y de falta de cobertura tanto en las zonas rurales
como en las urbanas o por una cuestión lingüística, ya que casi todas son atendidas por personas que no
hablan alguno de los idiomas mayas.
Por otro lado, a pesar de los avances legales y normativos, los diferentes planes de acción como el
PLANOVI y el marco institutional existente, aunque buscan velar por los derechos de las mujeres, se ven
limitados por un Estado que aún no cuenta con un sistema eficiente de servicio civil, que permita la carrera
administrativa y cuyas instituciones se debilitan por la práctica de que cada nuevo Gobierno entrante
cambia su aparato administrativo.169
Existe, además, un numeroso y variado grupo de organizaciones de la sociedad civil que trabajan el tema
de VCMN: la Fundación Sobrevivientes, la Unión Nacional de Mujeres Guatemaltecas (UNAMG), la
Coordinadora Nacional de Viudas de Guatemala (CONAVIGUA), Centro de Investigación, Capacitación y
Apoyo a la Mujer (CICAM), el Grupo Guatemalteco de Mujeres (GGM), la Asociación Nuevos
Horizontes, son solo algunos ejemplos de tales organizaciones. Las dos últimas forman parte de la Red de
la No Violencia contra las Mujeres (REDNOVI), la cual participa activamente en la CONAPREVI. 170
A pesar de la existencia del Instituto Nacional de Estadísticas (INE), Guatemala no cuenta con fuentes
estadísticas fiables sobre violencia contra las mujeres. Algunas organizaciones de la sociedad civil han
hecho un importante esfuerzo de sistematizar y analizar las diferentes fuentes existentes: el Insituto
Nacional de Ciencias Forences (Inacif), el Ministerio Público e información de prensa. De la misma manera
la Procuraduría de Derechos Humanos publica periódicamente informes estadísticos sobre actos de
violencia contra la mujeres. Por otro lado, no existe una plataforma común para recopilar los datos
administrativos de las distintas instituciones involucradas en los procesos de denuncia. Esto se traduce en
los pocos datos fiables disponibles para poder demostrar avances o mejoras en la situación general, o en las
zonas geográficas donde se concentran las iniciativas promovidas por ONU Mujeres u otras
organizaciones.
167
Existen 34 redes de derivación a nivel nacional –departamentales y municipales- compuestas por instituciones públicas y
organizaciones sociales. En: Departamento de Atención a la Víctima, Ministerio Público. 2011. “Directorio Red Nacional de
Derivación para la Atención a las Víctimas de Delito”. Guatemala, 2011. p. 3
168
Los MAIs atienden todos los delitos de violencia contra la Mujer, así como las denuncias de sustracción y desaparición de
menores, cuentan con atención psicológoca, jurídica –auxiliares fiscales- médica y forense los 7 días de la semana. las 24 horas del
día. En http://www.mp.gob.gt/2012/10/ministerio-publico-inauguro-fiscalia-de-la-mujer-y-modelo-de-atencion-integral-en-coban/
consultada el (28 de enero de 2013).
169
PNUD Guatemala, Guatemala: hacia un Estado para el desarrollo humano, Informe nacional de desarrollo humano 2009-2010,
p. 295
170
Comisión Interamericana de Mujeres. 2010. “Análisis situacional: VIH y violencia contra las mujeres en Guatemala”.
Organización de los Estados Americanos, Washington, DC: p. 27-37.
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2.3
Contexto de la ONU y de UNIFEM/ONU Mujeres
El Sistema de Naciones Unidas en Guatemala
Guatemala tiene un equipo de país que incluye representantes de 18 agencias. 171 Según el Marco de
Asistencia de las Naciones Unidas para el Desarrollo Guatemala (UNDAF por sus siglas en inglés) para el
período 2010-2014, agencias como UNIFEM/ONU Mujeres, el UNFPA, el PNUD, UNICEF, UNESCO, y
la OPS/OMS, trabajan programas que abordan el tema de la VCMN.172 Según distintas personas
entrevistadas, el sistema de la ONU en Guatemala ha contado con bastante disposición para avanzar en el
trabajo conjunto, con ocho programas conjuntos desde el 2008, de los cuales cinco han sido implementados
con fondos del Fondo para el Logro de los Objetivos de Desarrollo del Milenio (F-ODM). Los esfuerzos
de coordinación con relación al tema de género, y que responden al tema de la erradicación de la violencia
contra las mujeres se describen en la sección 3.3.
UNIFEM y ONU Mujeres en Guatemala
Es importante ubicar el análisis presentado en este estudio de caso con relación al tipo de oficina y el
personal que tuvo UNIFEM Guatemala durante el periodo evaluado.
Hasta el 2011, la Oficina de Guatemala dependía y reportaba a la Oficina Sub-Regional de ONU Mujeres
para México, Centroamérica, Cuba y República Dominicana, ubicada en la ciudad de México. Como se
describe en la sección 4.2, esto tuvo varias implicaciones en la forma de operar en Guatemala: se trabajaba
en función de la implementación de proyectos concretos, con personal contratado para ese efecto, por
periodos definidos y.en muchas ocasiones las iniciativas implementadas en Guatemala formaban parte de
un programa regional. La Oficina de Programas se financiaba a través de esos proyectos, no se contaba con
una visión global de Oficina y la dependencia de México influyó en aspectos tales como la planificación,
administración de fondos y los reportes sobre resultados.
Durante estos años, la oficina en Guatemala, que era una Oficina de Programas, contó con poco personal
técnico (4 coordinadoras de proyectos o de áreas y una coordinadora regional para el programa Mujeres y
Desarrollo Económico Local, MYDEL, que era quien ejercia la función de Coordinadora de la Oficina de
Programas), cuya contratación también estaba vinculada a proyectos específicos.173 No había persona o
unidad específica a cargo del tema de VCMN, sino que este tema se trabajó dentro de varios proyectos,
programas regionales y en el contexto del programa conjunto financiado por el F-ODM e implementado
durante el periodo 2008-2011. En 2011 se inició la transición a ONU Mujeres y se elaboró una estrategia de
país para los años 2012-2013. En 2012 se creó una oficina de Representación que reporta a la nueva
Oficina Regional para América Latina y el Caribe en Panamá y en mayo de ese mismo año fue nombrada la
representante de ONU Mujeres para Guatemala.
171
Según el sitio web del SNU en Guatemala, http://www.onu.org.gt/contenido.php?ctg=1354-1338-naciones-unidas-enguatemala, acceso 04-03-2013
172
United Nations. “Marco de Asistencia de las Naciones Unidas para el Desarrollo – UNDAF”, Guatemala, 2010-2014.
173
El tipo de personal se presenta en el UN Women Presence Matrix que forma parte del UN Women’s Field Capacity Assessment
– Minimum Requirements for UN Women’s Presence at the Country Level, February 2011.,
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P e r f i l d e l Tr a b a j o d e U N I F E M / O N U M u j e r e s e n
e l Te m a d e V C M N e n G u a t e m a l a ( 2 0 0 8 - 2 0 11 )
3.
Esta sección presenta una visión general del trabajo gestionado o apoyado por UNIFEM/ONU Mujeres en
Guatemala en relación a la VCMN, específicamente en el periodo 2008-2011. Esto incluye iniciativas
financiadas y/o acompañadas por UNIFEM/ONU Mujeres, así como proyectos financiados por el Fondo
Fiduciario de la ONU para poner fin a la Violencia contra las Mujeres (UNTF to EVAW en sus siglas en
inglés), administrado por UNIFEM/ONU Mujeres.
3.1
El Marco de las Estrategias Regionales y Subregionales
La programación de UNIFEM/ONU Mujeres en materia de VCMN se enmarca dentro del Plan Estratégico
Regional para América Latina y el Caribe (2008-2011) y la Estrategia Sub-Regional para México,
Centroamérica, Cuba y la Republica Dominicana (2008-2009). El Plan Estratégico Regional hace énfasis
en dos áreas relacionadas con la VCMN:

Políticas y legislación: La sensibilización y el fortalecimiento de capacidades para la elaboración
de leyes nacionales que abordan el tema de la VCMN, conforme a los instrumentos internacionales;
y el fortalecimiento de las capacidades de los principales actores responsables para la
implementación de leyes relacionadas con la VCMN, incluyendo jueces y otros funcionarios
públicos, líderes indígenas, profesores y organizaciones de la sociedad civil.

Comunicación: Dirigir la campaña anual de 16 días de activismo contra la violencia basada en
género, involucrando al Sistema de las Naciones Unidas y otras partes interesadas; llevar a cabo
actividades preventivas que implican incluir a hombres, niños, adolescentes y personas indígenas
en el desarrollo de campañas de comunicación para prevenir la VCM en poblaciones urbanas
masculinas.
La Estrategia Sub-Regional, hace hincapié en la participación política de las mujeres y el fortalecimiento
de las capacidades de las instituciones gubernamentales y no-gubernamentales. En cuanto a la eliminación
de la violencia contra las mujeres en la sub-región, la labor de la organización se centraba en dos asuntos
principales: 1) la violencia hacia las mujeres migrantes como resultado del aumento del fenómeno
migratorio; 2) el aumento de la inseguridad y de la violencia contra las mujeres que viven en zonas urbanas
como consecuencia del proceso de urbanización en la región. En relación al último punto, UNIFEM/ONU
Mujeres impulsó en El Salvador y Guatemala el Programa Ciudades Seguras, que se describe más
ampliamente en la siguiente sección.
A nivel sub-regional, UNIFEM/ONU Mujeres se planteó un trabajo con los gobiernos de la sub-región en
el desarrollo de herramientas para la eliminación de la VCMN. Éstos incluyen el fortalecimiento
institucional, la realización de campañas de sensibilización y la promoción de mejoras en el marco
normativo. En relación al marco normativo, la estrategia propone reducir brechas que existen entre las
legislaciones nacionales y los instrumentos internacionales para la promoción de los derechos de las
mujeres ratificados por los gobiernos de la sub-región.
3.2
La Programación EVCM en Guatemala
La programación en VCMN en Guatemala respondía principalmente a la financiación de proyectos
concretos y no a una estrategia de trabajo claramente definida. Sin embargo, las acciones programáticas se
enmarcaban dentro de las estrategias de UNIFEM/ONU Mujeres para la región y la sub-región. Además,
sus iniciativas se han desarrollado dentro de un contexto postconflicto en el cual tanto el Sistema de la
ONU como organizaciones de la sociedad civil han estado trabajando para eliminar la cultura de
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12
impunidad, una preocupación también expresada con relación a los derechos de las mujeres por el Comité
para la Eliminación de la Discriminación contra la Mujer (2009) y por la Relatora Especial sobre Violencia
contra las Mujeres, Yakin Ertürk, en su visita a Guatemala en 2005.
UNIFEM/ONU Mujeres apoyó distintas iniciativas cuyo objetivo era la eliminación de la VCMN en
Guatemala a través del apoyo directo a proyectos, fondos regulares, y a través del Fondo Fiduciario de la
ONU para poner fin a la VCMN.
Apoyo financiero de
proyectos
Inversiones de UNIFEM/ONU Mujeres relativas a la VCMN 2008-
Tomando en cuenta los datos
2011
recopilados durante la revisión de
Monto aproximado174 del apoyo financiero de ONU Mujeres basado
documentos y las entrevistas con el
en proyectos / aportes específicos de donantes- US $1.547,019
personal, las inversiones de
Fondos regulares de UNIFEM – El monto exacto para Guatemala
UNIFEM/ONU Mujeres relacionadas
no está disponible.
con la eliminación de la VCMN en
Fondo Fiduciario de la ONU para poner fin a la VCM – US $851,758
Guatemala fueron aproximadamente
de US $1.547,019 para el periodo
2008-2011, periodo durante el cual UNIFEM/ONU Mujeres Guatemala trabaja el tema de VCMN como
componente o enfoque principal de cinco proyectos.175
Inversiones de UNIFEM/ONU Mujeres relativas a la VCMN en Guatemala (por proyecto)
Monto invertido176
Proyecto
Fortaleciendo la Institucionalidad de las
Mujeres en Guatemala
US $256,516
Ciudades Seguras
US$530,102
Alianza para la Acción
US$680,700 (2007 hasta la fecha)
Mujeres, Paz y Seguridad
US $149,953
Trabajando contra la Discriminación
Étnica/Racial y de Género: Programa para el
Ejercicio Efectivo de los Derechos de las
Mujeres Indígenas Latinoamericanas
Datos para Guatemala no están disponibles
El proyecto Fortaleciendo la Institucionalidad de las Mujeres en Guatemala financiado por el F-ODM,
fue el primer programa conjunto implementado en Guatemala, liderado por el Fondo de Población de
Naciones Unidas (UNFPA). En el proyecto también participaron UNIFEM/ONU Mujeres, PNUD, FAO,
PMA, y OPS y fue implementado por un periodo de tres años (2008-2011). Contaba con cinco ejes
temáticos: el fortalecimiento institucional, el abordaje de la violencia, discriminación y racismo contra las
174
No siempre se pudo conseguir el monto financiero exacto por el periodo (2008-2011) así que en algunos casos, como el de
Alianza para la Acción o Ciudades Seguras, se incluyó la totalidad de la inversión para la duración entera del proyecto.
175
El monto aproximado para los proyectos manejados por UNIFEM/ONU Mujeres en Guatemala no incluye los fondos para el
Programa Mujeres Indígenas porque éstos se manejaron a partir de un presupuesto regional y no se cuenta con un desglose de datos
financieros por país.
176
El monto indicado en el cuadro es para el periodo 2008-2011. Cuando no fue posible recopilar datos para este periodo exacto, se
precisa el periodo para el cual se pudo recopilar información.
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13
mujeres, el empoderamiento económico, la participación política y el monitoreo y evaluación. El cuadro a
la derecha describe los objetivos principales del proyecto.
El presupuesto total para el proyecto fue de $US 7.200,000. Entre todas las agencias se ejecutaron
aproximadamente $US920,455. De estos fondos recibidos por UNIFEM/ONU Mujeres, US$ 256,516177 se
asignaron inicialmente a actividades en el eje de violencia, el cual tenía como resultado el aumento de los
servicios para la prevención y respuesta a la violencia, la discriminación y el racismo. Sin embargo,
tomando en cuenta que el fortalecimiento institucional (eje 1) está estrechamente vinculado a la
erradicación de la violencia contra las mujeres, se puede considerar que parte de los fondos asignados a este
eje contribuyeron a los esfuerzos de UNIFEM /ONU Mujeres para la erradicación de la VCMN.
Otro proyecto significativo es el de
Los objetivos principales del proyecto Fortaleciendo la
Ciudades Seguras, un programa
Institucionalidad de las Mujeres en Guatemala178
regional en América Latina (que
ahora se ha replicado en otras
1. El fortalecimiento de la Secretaría Presidencial de la Mujer, de
la Defensoría de la Mujer Indígena y de los mecanismos de los
regiones) cuyo objetivo es
gobiernos locales para el avance de las mujeres facilita la
fortalecer la participación
integración de la Política Nacional de Promoción y Desarrollo de las
ciudadana de las mujeres con el
Mujeres Guatemaltecas y de su Plan de Ejecución 2008-2012 en la
objetivo de reducir la VCMN en el
planificación y presupuestos de las instituciones estatales a nivel
ámbito público y privado de las
nacional y local.
ciudades. El presupuesto total
2. Las principales instituciones del gobierno central y los
asignado a la implementación del
gobiernos locales que son responsables de la implementación de
Programa Regional en Guatemala
los ejes globales de la Política Nacional de Promoción y Desarrollo
es de aproximadamente US
de las Mujeres Guatemaltecas y de su Plan de Ejecución 2008$372,350, el cual se está utilizando
2012 para la erradicación de la violencia, la discriminación y el
racismo contra las mujeres, el desarrollo económico y productivo
para desarrollar varias actividades
con equidad, y la equidad en la participación sociopolítica, diseñan
relacionadas con el fortalecimiento
e implementan estrategias para avanzar en su cumplimiento.
institucional en el sector de la
seguridad urbana y para impartir
capacitaciones en el tema de VCMN a mujeres que viven en zonas urbanas.
La programación de UNIFEM/ONU Mujeres en el periodo 2008-2011 en materia de VCM incluye otros
tres proyectos clave:
31) El proyecto Alianza para la Acción es una iniciativa conjunta para la cual se han invertido US
$768,200 desde el 2007 hasta la fecha, que tiene como objetivo principal erradicar la impunidad
relativa al femicidio y otras formas de VCM;
32) El programa Mujeres, Paz y Seguridad se implementó tanto en Guatemala como en Colombia a
partir del 2005 hasta el 2012 con el objetivo de fortalecer la gobernabilidad democrática y el
proceso de construcción de la paz integrándole un enfoque en género. El monto invertido durante
el periodo 2008-2011 en el marco de este proyecto en Guatemala fue de US $149,953 y el trabajo
se enfocó en el fortalecimiento de la gobernabilidad democrática y la paz con justicia de género en
el contexto posconflicto;
177
Esta cifra fue proporcionada por la oficina de ONU Mujeres en Guatemala. Sin embargo, la evaluación final señala que de los
$7.2 millones, entre todas las agencias ejecutaron unos $920,455 el eje de la VCM.
178
Tal como están presentados en los documentos de UNIFEM/ONU Mujeres.
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14
33) El programa Trabajando contra la Discriminación Étnica/Racial y de Género: Programa para el
Ejercicio Efectivo de los Derechos de las Mujeres Indígenas Latinoamericanas es un programa de
alcance regional que pretende promover los derechos humanos de las mujeres indígenas y
disminuir la discriminación étnica y de género. Los fondos se manejaron a partir de un
presupuesto regional que cubre actividades en Bolivia, Ecuador, Guatemala, Honduras, Panamá y
Perú y alcanzaron los US $3.265,792. Sin embargo, los datos financieros desglosados por país
están disponibles únicamente para los años 2011 y 2012, a saber, US$ 365,000 y US$ 242,863
respectivamente para Guatemala.
Fondos regulares de UNIFEM/ONU Mujeres
Lamentablemente, no es posible estimar el financiamiento regular que se asignó al área temática VCMN en
Guatemala durante el periodo de estudio. Se sabe que una parte de los fondos regulares de UNIFEM/ONU
Mujeres se asignó para la implementación de los proyectos. Los documentos de proyectos revisados
indican que se utilizaron fondos regulares para financiar actividades en los proyectos Mujeres, Paz y
Seguridad en América Latina y Trabajando contra la Discriminación Étnica/Racial y de Género:
Programa para el Ejercicio Efectivo de los Derechos de las Mujeres Indígenas Latinoamericanas. Sin
embargo, estos eran proyectos regionales y con los datos disponibles no se ha podido desagregar los fondos
regulares por país.179
Fondo Fiduciario de la ONU para poner fin a la VCM (UNTF de sus siglas en inglés)
Durante el periodo 2008-2011, se desembolsó a través del UNTF un monto total de US$ 851,758 para
financiar el proyecto: "Safescaping" Guatemala's Indigenous Communities: Primary prevention of
gender violence by forming and mentoring young Mayan social change agents (2010-2012). Este
proyecto fue implementado por el Population Council conjuntamente con la Defensoría de la Mujer
Indígena (DEMI) y el Centro de Investigación, Capacitación y Apoyo a la Mujer (CICAM) y recibió el
apoyo del Grupo Interagencial de Trabajo de Adolescencia y Juventud del SNU en Guatemala. El proyecto,
cuyo objetivo principal era prevenir y reducir la violencia basada en género entre las niñas y adolescentes
indígenas, se implementó en 20 de las comunidades indígenas más pobres de Guatemala. Este proyecto fue
gestionado a través de la Oficina Sub-regional de México, quien estuvo a cargo del monitoreo del mismo,
razón por la cual, afirmaron algunas de las personas entrevistadas, no existe memoria institucional de este
proyecto en la Oficina de Guatemala, ni se tuvo relación entre socias implementadoras y el personal de
UNIFEM/ONU Mujeres en Guatemala.
El Anexo VI ofrece más información sobre los proyectos enumerados arriba.
3.3
Coordinación y Colaboración Interagencial
Durante el periodo considerado por este estudio, la coordinación interagencial del Sistema de las Naciones
Unidas en Guatemala en términos de la erradicación de la VCM se realizó en el marco del principal espacio
de trabajo en materia de género del Sistema de Naciones Unidas (SNU) que es el Grupo Interagencial de
Género y Avance de las Mujeres (GIGAM) cuyo trabajo se sustenta en el Marco de Asistencia de las
Naciones Unidas para el Desarrollo (UNDAF por sus siglas en inglés) 2005-2009 y el UNDAF 2010-2014.
Mientras el primer UNDAF citado aborda muy brevemente la problemática de la VCM, el segundo incluye
varios indicadores para medir el avance del SNU en esta área, los cuales están incluidos principalmente
dentro del componente “seguridad y justicia.”
179
El proyecto Mujeres, Paz y Seguridad en América Latina (implementado en Guatemala y Colombia) recibió US$ 185,000 en
fondos básicos para el periodo 2005-2012; El proyecto Trabajando contra la Discriminación Étnica/Racial y de Género:
Programa para el Ejercicio Efectivo de los Derechos de las Mujeres Indígenas Latinoamericanas recibió US$ 260,000 en fondos
regulares para la fase preliminar (abril-diciembre 2008).
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Aparte de UNIFEM/ONU Mujeres, los actores que más han trabajado en el tema de la VCMN son UNFPA
y el PNUD, el primero aportando a los esfuerzos de la SNU en materia de violencia sexual y el segundo
participando, principalmente, desde la perspectiva de la gobernabilidad.
Las agencias del SNU presentes en Guatemala han trabajado conjuntamente desde 2009 en el marco de la
Campaña ÚNETE del Secretario General para poner fin a la violencia, la cual se llevará a cabo hasta finales
del 2015.
Durante el periodo 2008-2011, el Sistema de las Naciones Unidas en Guatemala contaba con un total de
cinco programas financiados por el F-ODM, uno de los cuales tenía un componente encaminado a erradicar
la violencia contra las mujeres. Adicionalmente, se desarrolló una alianza estratégica entre UNFPA y
UNIFEM dentro del marco de la iniciativa Alianza para la Acción. Actualmente, el equipo de país cuenta
con dos programas conjuntos adicionales que atienden la VCMN, ambos financiados por el Fondo para la
Consolidación de la Paz, uno con enfoque en la investigación criminal y otro con enfoque en la atención a
las víctimas.180
Los dos principales espacios de coordinación en el SNU son el GIGAM, liderado por UNFPA hasta 2012
momento en que su coordinación fue asumida por ONU Mujeres, y el Grupo Interagencial de Derechos
Humanos, Gobernabilidad, Seguridad y Justicia, en el cual la agencia líder es la Oficina en Guatemala de la
Alta Comisionada para los Derechos Humanos.
180
Los dos programas conjuntos son: 1) Fortalecimiento de las Capacidades Nacionales para la Investigación Criminal,
implementado conjuntamente con ONU Mujeres, PNUD y UNODC desde noviembre de 2011 y 2) Fortalecimiento de las
Capacidades Nacionales para la Atención a la Victima, implementado conjuntamente con ONU Mujeres, UNFPA y UNICEF
desde septiembre de 2012.
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Hallazgos sobre las preguntas estratégicas de
la Evaluación
4.
Esta sección presenta los resultados de las tres preguntas que plantea la evaluación temática del trabajo de
UNIFEM/ONU Mujeres en este tema de la VCMN:

Período 2008-2011. ¿Cuál ha sido la contribución enfocada a los resultados para poner fin a la
violencia contra las mujeres en Guatemala, realizada por las entidades predecesoras de ONU
Mujeres? ¿Cuáles son las lecciones aprendidas? (Sección 4.1).

¿Cuáles han sido y son las fortalezas y debilidades de UNIFEM/ONU Mujeres y las lecciones
aprendidas de sus entidades predecesoras, con relación a la planificación, la implementación, el
monitoreo y la evaluación de su trabajo relacionado con la EVCM? (Sección 4.2).

¿En qué medida ONU Mujeres se ha posicionado estratégicamente para aportar un valor agregado
en la prevención y respuesta a la violencia contra las mujeres en contextos globales, regionales y
nacionales? (Sección 4.3).
4.1
Pregunta estratégica # 1: Las contribuciones a los
resultados y las Lecciones aprendidas relacionadas
En esta sección se presentan las observaciones sobre las contribuciones de UNIFEM/ONU Mujeres con
relación a las tres áreas de su mandato. En el numeral 4.1.2 se presenta un análisis del enfoque de
UNIFEM/ONU Mujeres y su relevancia según elementos del contexto y las perspectivas de las personas
entrevistadas. En los numerales 4.1.2 y 4.1.2 se presentan los hallazgos sobre contribución a los resultados
en el trabajo operativo, normativo/inter-gubernamental, y de coordinacón interagencial. Es importante
señalar que es díficil precisar el aporte específico de UNIFEM/ONU Mujeres a los procesos dada, como se
ha indicado anteriormente, la falta de sistemas de información idóneos y de memoria institucional al
respecto. Unido a esto, algunas de las personas entrevistadas caracterizan el acompañamiento de
UNIFEM/ONU Mujeres en función de la organización, el apoyo a actividades o procesos clave, o
colaboraciones en momentos estratégicos dependiendo de un determinado contexto.
El 4.1.3 describe una serie de factores que afectaron la sostenibilidad de los procesos impulsados por
UNIFEM/ONU Mujeres y por ende también incidieron en los resultados logrados hasta la fecha.
4.1.1 Relevancia del Trabajo de ONU Mujeres según el
Contexto
El Continuo de la Violencia y Énfasis en la Impunidad
Como se mencionó anteriormente, parte de la violencia que se ejerció durante el conflicto armado en
Guatemala estuvo especialmente dirigida contra las poblaciones indígenas. Según la Comisión de
Esclarecimiento Histórico (CEH), más de 10,000 mujeres fueron víctimas de violencia de género y 1,500
de violencia sexual. El mismo informe afirma que el 89 por ciento de las víctimas eran de origen maya.
Aunque el conflicto armado ha terminado, las mujeres sobrevivientes siguen sufriendo las secuelas físicas y
psicológicas de estos crímenes.181
181
Inter-American Commission of Women. 2010. “Análisis situacional: VIH y violencia contra las mujeres en Guatemala”.
Organization of American States, Washington, DC: p. 28.
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Dieciséis años después de la firma de los Acuerdos de Paz, la violencia contra las mujeres en Guatemala
está lejos de haber terminado. Este país tiene una de las tasas más altas del mundo de delitos violentos
contra las mujeres, incluyendo el femicidio. La violencia contra las mujeres guatemaltecas se inscribe en un
contexto de discriminación, racismo, machismo y una cultura patriarcal que ha estado presente en los actos
de violencia aún antes del conflicto armado y que unido a la situación de pobreza ponen a las mujeres en
una mayor condición de vulnerabilidad. Es así como las organizaciones guatemaltecas de mujeres definen
ésta situación como un continnum de violencia en contra de ellas, en el que se entiende el femicidio como
la continuación de la violencia ejercida durante el conflicto armado interno.182
Varios de los actores claves entrevistados afirmaron que “en Guatemala hace diez años la violencia contra
la mujer era una conducta ‘normalizada’ y aceptada socialmente. La entrada en vigencia de la Ley contra el
Femicidio y otras formas de violencia (2008) y el lanzamiento de la Camapaña ÚNETE del Secretario
General (2009) han significado un “antes” y un “después” en el entendimiento de la VCMN como un
delíto, como un comportamiento no aceptado.”
En el Informe de 2011 sobre sus actividades anuales en Guatemala, la ACNUDH indicó que el acceso a la
justicia para las mujeres víctimas de violencia sigue siendo un problema, especialmente para las mujeres
indígenas, que se enfrentan a una
doble barrera en la búsqueda de la
Buenas Prácticas
asistencia del sistema judicial: el
183
machismo y el racismo. También
afirmó que el 98% de los casos de
Trabajar el tema de erradicación de la VCMN como parte del
continuo de la violencia desde el conflicto armado permite abordar
femicidio reportados permanecen
la impunidad desde una perspectiva histórica y prolongada en el
impunes y que el Estado hace poco
tiempo, visibilizando las violencias que se han ejercido en contra de
para investigar los casos, enjuiciar a
las mujeres y situándolas como constructoras de paz.
los responsables y ofrecer
reparaciones justas a sus familias.184
Es por esta razón que algunos de los objetivos y resultados de los diferentes proyectos implementados por
UNIFEM/ONU Mujeres se entrecruzan, relacionando constantemente la violencia y las violaciones de
derechos humanos durante el conflicto armado con los hechos de violencia de la actualidad. El trabajo de
empoderamiento de las mujeres, de incidencia y de fortalecimiento institucional responde indistintamente a
las violencias que han vivido las mujeres guatemaltecas y tienen un énfasis muy fuerte en el marco legal,
entendido éste como la aprobación de leyes, que acordes con los Instrumentos internacional de protección
de los derechos humanos de las mujeres, tipifican la violencia en contra de las mujeres, el seguimiento a su
implementación y al fortalecimiento al Sistema de Justicia para reducir los altos índices de impunidad y
mejorar la atención a las mujeres sobrevivientes. Este enfoque ha sido relevante en el contexto
guatemalteco, según los aportes de la mayoría de las personas entrevistadas. Sin embargo, otros actores
clave señalan la preocupación de que un enfoque centrado en la impunidad, y en el sistema de justicia en un
sentido amplio, no permite abordar las causas fundamentales de la violencia contra las mujeres y lograr
prevenirla.
182
Stanford Victoria, Guatemala: del genocidio al femicidio. Guatemala: F&G Editores, 2008.
UNHCHR. 2012. “Informe de la Alta Comisionada de las Naciones Unidas para los Derechos Humanos sobre las actividades de
su oficina en Guatemala” Presented to the Human Rights Council during its 19th sesión, Report no. A/HRC/19/21/Add.1: párrafo
48.
184
MADRE, Bárcenas Women's Working Committee, Muixil, and International Women’s Human Rights Clinic City University of
New York School of Law. 2010. “Violations of Women’s Human Rights in Guatemala: Recommendations for the List of Issues to
the Guatemalan Government”. Presented to the UN Human Rights Committee at its 100th session, New York.
183
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En relación con el PLANOVI
A pesar de que las actividades y los resultados planeados en los proyectos de ONU Mujeres se alineaban
con, por lo menos, una de las cuatro áreas de trabajo del Plan Nacional de Prevención y Erradicación de la
Violencia Intrafamiliar contra las Mujeres PLANOVI (investigación, prevención, apoyo a las
sobrevivientes y la creación de capacidades institucionales), no hubo un trabajo específico en el impulso
para la implementación del mismo. En algunos casos, incluso, se evidenció confusión en el rol que cumple
el Sistema de Naciones Unidas –UNIFEM/ONU Mujeres y UNFPA- en función del apoyo para la
implementación del PLANOVI.
En su informe de actividades la ACNUDH ha expresado su preocupación por el hecho de que este Plan no
ha sido implementado plenamente, debido a la insuficiencia de la asignación de fondos gubernamentales.
Esta misma observación la hacen algunos de los actores entrevistados, quienes en varios casos reconocieron
la ausencia total de su implementación.
Trabajo con Autoridades Ancestrales/Locales
Guatemala es un país en el que predomina la población indígena. Cerca del 60% de la población pertenece
a la cultura Maya, Xinca o Garífuna y cohabitan en el mismo territorio 25 idiomas maternos (22 mayas, 1
xinca, 1 garífuna y el español). De ahí la importancia de trabajar e incorporar en todos los programas o
proyectos establecidos una perspectiva respetuosa y acorde a esa pluriculturalidad.
UNIFEM/ONU Mujeres ha intentado incorporar de manera transversal el enfoque de derechos de las
mujeres indígenas en cada uno de sus proyectos y programas. Sin embargo, según se pudo identificar, el
gran peso de esa transversalización recae en el Programa de Mujeres Indígenas, a través del trabajo que se
realiza con las organizaciones de mujeres indígenas maya y con las Autoridades Ancestrales de los 48
cantones de Totonicapán. En este sentido, algunas de las personas entrevistadas manifestaron su
preocupación por la división indígena/mestiza o ladina que se da en el trabajo cotidiano de UNIFEM/ONU
Mujeres, donde, según varias personas entrevistadas, no se hace el suficiente esfuerzo de integrar y
coordinar el trabajo de todas las organizaciones, manteniendo una forma de trabajo paralela que no permite
concertar esfuerzos “mixtos” para unos objetivos común.
4.1.2 El Mandato Operativo de ONU Mujeres
Esta dimensión del mandato de UNIFEM/ONU Mujeres se centra en las acciones que se llevan a cabo en el
país por medio de los proyectos financiados y a través de la asistencia técnica. Una de las dificultades con
las que se contó en el momento de hacer este estudio de caso fue la ausencia de planificación estratégica
por parte de la Oficina de Programa de UNIFEM/ONU Mujeres en Guatemala hasta el año 2011. El trabajo
desarrollado en Guatemala estuvo organizado y priorizado por proyectos, los cuales se iban desarrollando
de manera paralela sin coordinación aparente entre ellos. Algunas de las personas entrevistadas hicieron
referencia a esta situación, incluso, entre las organizaciones e instituciones socias de un mismo proyecto.
Este hecho generó que se duplicaran algunas actividades y, en algunos casos, conflictos entre los
componentes de un mismo proyecto. Algunas de las personas entrevistadas manifestaron tener la
“sensación de poca claridad en la implementación de los mismos”, en este sentido el Informe de la
Evaluación del Proyecto F-ODM señaló entre sus recomendaciones que es necesario “llevar procesos de
comunicación e interlocución entre las socias y las agencias al mismo nivel, garantizando que las socias
tengan acceso a la rendición de cuentas y a la transparencia de la información para evitar la desconfianza
generada que en vez de fortalecer el Sistema de Naciones Unidas lo debilita”185 (sic). (Estas características
del funcionamiento de la organización se retoman en la sección 4.2.)
185Naiara
Tres-Castro Arnedo. 2011. Fortaleciendo la Institucionalidad de las Mujeres en Guatemala. Informe final de
evaluación. Recomendación R1. pág. 44
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19
En este sentido se dificulta poder visibilizar de forma concreta los resultados del trabajo de UNIFEM/ ONU
Mujeres en Guatemala, a pesar de que la mayoría de los actores relevantes destacaron el importante rol
político que ha tenido a través de sus aportes a organizaciones e instituciones en momentos en que el
contexto lo ha exigido.
Resultados a corto y mediano plazo
Políticas públicas y normativa interna para la erradicación de la violencia contra la mujer.
Todos los actores consultados
UNIFEM/ONU Mujeres contribuyó a los siguientes resultados:
resaltaron el marco legal y normativo
existente en Guatemala para la
“Un marco normativo y legal que proteje los derechos de las
mujeres y se enfoca a la erradicación de la VCM”
erradicación de la VCMN como uno
de los más importantes avances del
“Establecimiento de la Comisión para el Abordaje del Femicidio
periodo 2008-2011 y destacaron, así
(COPAF) en seguimiento a la recomendación del Comité CEDAW”.
mismo, la contribución de
“La aprobación del Decreto 22-2010, en el que se aprueba la
UNIFEM/ONU Mujeres a través del
incorporación de las Oficinas Municipales de la Mujer en el Artículo
trabajo directo con los mecanismos
96 Bis de este Código”.
de la mujer y el trabajo de
“Las Oficinas de Atención a la Víctima del Ministerio Público
acompañamiento técnico y cabildeo
fortalecidas en su Modelo de Atención Integral”.
para contribuir a la aprobación de
leyes complementarias a la
erradicación del femicidio y a la implementación de los marcos jurídicos y políticos por parte de las
instituciones responsables.186
En cuanto al marco institucional y de políticas públicas, como se señaló en el apartado 2.2, Guatemala
cuenta con una importante y diversa institucionalidad enfocada a la erradiación de la VCMN. La SEPREM,
la COPAF, la DEMI, las Oficinas Municipales de la Mujer y la CONAPREVI son algunas de las
principales instituciones encargadas de esta cuestión.
En ese sentido implementó el Proyecto F-ODM (Fortaleciendo la Institucionalidad de las mujeres en
Guatemala), cuyo objetivo principal era el fortalecimiento de la SEPREM y la DEMI, dos de las
instituciones públicas que trabajaban por “el avance de las mujeres” y la implementación de dos de
las Políticas Públicas relacionadas con la participación política de las mujeres y planificación y
presupuesto con perspectiva de género.
Uno de los logros identificados del Proyecto F-ODM fue la “alineación” de las instituciones en el tema de
erradicación de la violencia contra las mujeres. Según el Informe de evaluación final del proyecto “La
mayor contribución del programa en éste eje ha sido una coordinación inter-agencial que ha permitido
abordar la cuestión de manera integral. Esto es; por un lado el apoyo a DEMI a nivel central y
departamental para proveer servicios directos a las mujeres víctimas no sólo de violencia, sino también de
discriminación y racismo (género/etnia/pobreza)”.187
Durante el período de estudio, UNIFEM/ONU Mujeres también apoyó a la Comisión de la Mujer del
Congreso de la República, sexta legislatura, a través de la instalación de la Secretaria Técnica de la
Comisión, desde la cual contribuyó al diseño, consenso y desarrollo de la Agenda Legislativa para el
Avance de las Mujeres, la cual contó con proyectos de ley relacionados, tanto directamente como
indirectamente con el tema de EVCM y a la aprobación de por lo menos las siguientes leyes relacionadas
directamente con la EVCMN: la Ley contra la Violencia Sexual, Explotación y Trata de Personas (Decreto
No. 9-2009) y al Decreto 22-2010, con el que se aprueba la incorporación de las Oficinas Municipales de la
186
Proyecto F-ODM Fortaleciendo la Institucionalidad de las Mujeres en Guatemala. 2008-2011; Alianza para la Acción en la
prevención de los asesinatos contra las mujeres en Guatemala; Campaña ÚNETE del Secretario General.
187
Informe Final Evaluación “ Fortaleciendo la Institucionalidad de las Mujeres en Guatemala”, Guatemala 2011.
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Mujer en el Artículo 96 Bis de este Código; y además, apoyó el proceso de fiscalización de la
implementación de las leyes contra el Femicidio y otras Formas de Violencia contra la Mujer y contra la
Violencia Sexual, la Explotación y la Trata de Personas y la Ley para Prevenir, Sancionar, y Erradicar la
Violencia Intrafamiliar en los 22 departamentos del país. Del mismo modo, se contribuyó a fortalecer
mecanismos de rendición de cuentas y planificación estratégica en la implementación de las leyes en el
territorio nacional a través de la Comisión de la Mujer del Congreso de la República, que contó con la
participación de los mecanismos de la mujer y muchas organizaciones de mujeres. Todas estas actividades
se desarrollaron como parte del proyecto financiado por el F-ODM.
Algunos de los actores clave entrevistados resaltaron el trabajo de acompañamiento de UNIFEM en la
aprobación de la Ley Contra el Femicidio (2008), la cual marcó un antes y un después en el tema de
Erradicación de la VCMN.
Personas entrevistadas,
pertencientes tanto a
Buenas Prácticas
organizaciones indígenas como
mestizas, manifestaron también
la importancia del trabajo de
El acompañamiento técnico y político en el diseño y la aprobación
de leyes en materia de erradicación de la VCMN acompañado de
descentralización de la temática
un proceso de “fiscalización” en su implementación a nivel nacional.
de VCMN, realizado por las
Diputadas del Congreso de la
República en el marco del proyecto apoyado por UNIFEM/ONU Mujeres. Personas entrevistadas afirmaron
que el hecho de trasladarse a zonas rurales del país contribuyó a la difusión de la Ley contra el Femicidio
como instrumento de prevención del delito y permitió, además, el conocimiento de los mecanismos e
instrumentos de protección por parte de mujeres y hombres que no tenían alcance a ellos. En el mismo
sentido señalaron que este ejercicio permitió tener un diagnóstico de los retos para la implementación de la
Ley.
La fiscalización da luces sobre una “buena práctica” en los esfuerzos de asegurar la implementación de una
ley. Por lo cual debería fortalecerse, continuando con el ejercicio y haciendo un seguimiento claro de los
resultados de dicho proceso.
Las organizaciones defensoras de los derechos de la mujer influyen en políticas, acciones y
presupuestos para hacer frente a la VCMN.
Durante 2008-2011, según información de la Oficina de ONU Mujeres en Guatemala, UNIFEM/ONU
Mujeres implementó cinco proyectos enfocados en el fortalecimiento de organizaciones de mujeres y de
derechos humanos -indígenas y no indígenas-, en la incidencia e interlocución con el Estado para la
implementación de las políticas y la normativa relacionada con la VCMMN: Fortaleciendo la
Institucionalidad de las Mujeres en Guatemala, la Alianza para la Acción en la Prevención de los
asesinatos contra mujeres en Guatemala, Programa de Mujeres Indígenas, Ciudades Seguras y Mujeres,
paz y seguridad.
En este eje de trabajo UNIFEM/ONU Mujeres enfocó su acción en dos sentidos: apoyar e incidir para el
aumento del número de mujeres -especialmente mujeres indígenas y rurales- que participan en la toma de
decisiones en los ámbitos social, político y económico a nivel municipal, departamental y nacional,188 por
medio del fortalecimiento de su ciudadanía y del ejercicio de sus derechos;189 y el fortalecimiento de
alianzas e interlocución sociedad civil y Estado190.
188
Proyecto: F-ODM, Fortalecimiento a la Institucionalidad de las Mujeres de Guatemala, Resultado 2.3.
Proyecto Ciudades Seguras.
190
Alianza para la Acción en la prevención de los asesinatos contra las mujeres en Guatemala, obj. 2.1, Fase 2
189
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De esta forma muchas de las acciones realizadas durante este periodo estuvieron centradas en apoyar a
organizaciones de la sociedad civil para promover la participación de las mujeres en la incidencia o toma de
decisones de las políticas para la erradicación de la VCMN.
En el marco del Proyecto Alianza para la Acción en la Prevención de los Asesinatos contra Mujeres en
Guatemala, se apoyó a organizaciones de la sociedad civil en el fortalecimiento de su interlocución con el
Estado en el acompañamiento para la efectiva implementación de las Políticas Públicas existentes en
materia de erradicación de la VCM.191
Uno de los logros resaltados en este sentido fue el apoyo al diseño y la implementación de la Estrategia de
la Comisión Nacional para el Abordaje del Femicidio192, la cual permitió el fortalecimiento de la
coordinación entre los tres poderes del Estado. También se sentaron las bases para la construcción de
alianzas estratégicas entre organizaciones de mujeres e instituciones estatales; se desarrollaron
conversatorios con jueces y juezas para fortalecer la aplicación de la Ley contra el Femicidio y otras
Formas de Violencia contra las Mujeres; y se realizó el primer Curso de Formación en Violencia Sexual a
jueces y juezas de la Ciudad de Guatemala, en el marco del proyecto GTM Mujeres, paz y seguridad. El
trabajo realizado por medio de la incidencia ante la Comisión para el Abordaje del Femicidio propició,
cuatro años después, la creación de la Comisión Presidencial para el Abordaje del Femicidio instalada por
el Presidente de la República en 2012.
En el marco del proyecto Mujeres Indígenas se fortaleció en liderazgo de las mujeres indígenas. Un
ejemplo de este trabajo fue el realizado con las mujeres pertenecientes a los 48 Cantones de Totonicapán,
en el ejercicio de sus derechos y su participación política a nivel comunitario y también los talleres de
formación y liderazgo para fomentar la participación de las mujeres en los COCODES. Parte de esté trabajo
fue el acompañamiento al proceso de selección y nominación de las autoridades de los Cantones, el cual
desembocó en el nombramiento para el 2012 de la primera mujer Presidenta de los 48 Cantones; y por
otro lado la mayor apropiación de los instrumentos y mecanismos internacionales de protección de los
derechos de las mujeres, trabajo que también se realizó en el marco del proyecto Ciudades Seguras.
Este último proyecto de carácter regional –también operó en El Salvador-, fue implementado en el
departamento de Izabal, por parte de la Fundación Guatemala; la Ciudad de Guatemala por medio del
trabajo desarrollado con la Municipalidad; y en la Universidad de San Carlos de Guatemala por intermedio
de su Instituto Universitario de la Mujer. A través de este proyecto, se han capacitado cerca de 70 mujeres
en 3 escuelas de liderazgo, y se logró una alianza, para su implementación con la Gobernación del
departamento de Izabal. Se ha trabajado a lo largo del proyecto con la Municipalidad de Guatemala con lo
cual se ha realizado un trabajo comunitario sostenido en por lo menos dos de las zonas capitalinas, entre
ellas la zona 5, en la que se ha trabajado en la capacitación de mujeres y en la conformación de comisiones
de la mujer los Comités Únicos de Barrio, las cuales han sido replicadas en 6 zonas más de la ciudad..
Varios de los actores entrevistados resaltaron el importante apoyo que UNIFEM/ONU Mujeres ha brindado
para la interlocución y la articulación de alianzas entre la sociedad civil y el Estado, “lo que en el contexto
de polarización del movimiento de mujeres es muy importante para el avance y la consolidación de las
políticas públicas.”
Sin embargo, uno de los grupos de personas clave manifestó que fueron algunas de las organizaciones de la
sociedad civil quienes le abrieron el camino a UNIFEM/ONU Mujeres en su interlocución con las
191
Alianza para la Acción en la prevención de los asesinatos contra las mujeres en Guatemala, obj. 2.1, Fase 2.
La Comisión Nacional para el Abordaje del Femicidio se creó en el 2006 a través de una carta de entendimiento entre los
presidentes de los tres poderes del Estado diseñando un plan de acción conjunto que permitió la coordinación entre las tres
ramas. En 2008 se “diluyó” la Comisión al no darle seguimiento. Ante la demanda de las organizaciones de mujeres y la Instancia
Coordinadora de la Modernización del Sector Justicia, se creó la figura de la Comisionada Presidencial para el Abordaje del
Femicidio, hasta el 09 de marzo 2012, cuando se crea la Comisión Presidencial para el Abordaje del Femicidio, COPAF bajo
acuerdo gubernativo 46-2012, cumpliendo parcialmente la recomendación del Comité CEDAW de institucionalizar la Comisión
Nacional para el Abordaje del Femicidio.
192
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22
instituciones del Estado. Esta doble lectura puede deberse a la historia de UNIFEM/ONU Mujeres en
Guatemala, agencia que comenzó como una Oficina de Programa y que recién para 2008 tuvo un
funcionamiento más articulado y sostenido en el país, a través del financiamiento recibido del Fondo para
el Logro de los Objetivos del Milenio (F-ODM).
Otra de las constantes afirmaciones durante las entrevistas fue la ausencia de apoyos a procesos de largo
“plazo” con la sociedad civil. El apoyo dado por UNIFEM a la sociedad civil fue caracterizado, por algunos
actores, como: “coyuntural, sin estrategia ni sostenibilidad”, lo cual no ha significado un aporte de
UNIFEM/ONU Mujeres al fortalecimiento de las organizaciones, ni a su rol político de incidencia.
Según los actores entrevistados, las organizaciones de mujeres se caracterizan por su diversidad de
enfoques para abordar la temática de VCMN en donde resaltan diferencias conceptuales y políticas
específicamente en lo referente a la atención a las víctimas. Las diferencias de abordajes, señalan algunas
personas entrevistadas, van desde las diferencias de enfoques teóricos feministas, hasta del tipo de
acompañamiento -con enfoque cultural o no- que se le hace a las víctimas, en especial a las mujeres
indígenas.
Pese a la importancia del movimiento de mujeres y los logros alcanzados, materializados en la normativa y
la institucionalidad, algunas de las personas entrevistadas señalaron el alto nivel de polarización que existe
entre ellas, lo que ha dificultado la continuidad y el fortalecimiento del trabajo realizado.
Las autoridades nacionales y locales mejoran la cantidad y/o calidad de los servicios escenciales para
las sobrevivientes de VCM.
Por lo menos dos de los proyectos implementados por ONU Mujeres durante 2008-2011 orientaron sus
resultados y actividades hacia el fortalecimiento de las Instituciones prestadoras de servicios y de atención
a las mujeres VCM: F-ODM y Alianza para la Acción.
Como en otras de las líneas de acción, UNIFEM trabajó por medio de dos estrategias: una de trabajo
directo con los mecanismos de la mujer (como la SEPREM, la DEMI y la Comisión de la Mujer del
Congreso de la República) y la otra consistente en apoyar a las organizaciones de la Sociedad Civil para el
fortalecimiento de las instituciones y organizaciones de presentación de servicios. Además del trabajo
realizado por medio de los proyectos, cabe resaltar el acompañamiento de UNIFEM al Ministerio de
Gobernación y al Ministerio Publico.
Los resultados esperados de estos proyectos estuvieron orientados a que las mujeres, niñas y adolescentes,
especialmente mujeres indígenas y rurales, tuvieran mayor acceso a servicios integrales, multisectoriales,
con pertinencia cultural y étnico-lingüística para prevenir y responder a la violencia, discriminación y
racismo en su contra.193 Esto se llevó a cabo a través del fortalecimiento de las capacidades en materia de
enfoque de género de las unidades, secciones o programas de las instituciones de seguridad, justicia, salud
y la institucionalidad de las mujeres,194 actividades que, para una de las personas entrevistadas, le ha dado
sostenibilidad al trabajo realizado en el marco del proyecto F-ODM, al interior de algunas instituciones
estatales como se intentará ejemplificar más adelante.
Dos de las instituciones beneficiarias directas del proyecto F-ODM fueron la DEMI y la SEPREM. En
cuanto a los resultados que se evidenciaron a través del apoyo a la SEPREM está la instalación de la
Unidad de Género del Ministerio de la Salud Pública y Asistencia Social y la transversalización de la
perspectiva de género por medio de la Mesa Técnica de la No Violencia contra las Mujeres del poder
ejecutivo, liderada por la SEPREM, en la que participan instancias institucionales que abordan el tema de
VCMN. También se trabajó para el fortalecimiento de las Oficinas de Atención a la Víctima, del
Ministerio Público195, por medio de capacitaciones en investigación criminal, y en el establecimiento del
193
Proyecto Fortalecimiento de la Institucionalidad de las mujeres de Guatemala, Resultado2.1
Proyecto Alianza para la Acción Resultado 2.2
195
Proyecto Fortalecimiento de la Institucionalidad de las mujeres de Guatemala, Resultado 2.1
194
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23
modelo de atención integral de atención a las víctimas (MAI), que se comenzó a implementar en 2012. Uno
de los reconocimientos que hace el Informe al Proyecto ODM es la creación de “espacios que venían
siendo demandados por la población y sociedad civil, para el abordaje de la violencia, discriminación y
racismo en contra de las mujeres. En los departamentos priorizados se impulsaron oficinas de DEMI que
fueron determinantes para atender las necesidades y demandas de muchas mujeres Guatemaltecas”.196
Algunos de los actores claves manifestaron la poca o nula sostenibilidad del fortalecimiento de la DEMI,
visibilizado en el cierre de las oficinas de Totonicapán y de Chiquimula, las cuales habían sido instaladas
durante la implementación del proyecto. Sin embargo, algunas de las personas entrevistadas atribuyeron
esta debilidad no solo a la falta de sostenibilidad del proyecto, sino al difícil entramado burocrático con el
que se tiene que enfrentar la DEMI para su fortalecimiento institucional a través de la ampliación de
presupuesto y planta de personal, caso contrario a lo ocurrido con la SEPREM, la cual, según algunas de las
personas entrevistadas y el Informe citado “se vio fortalecida y posicionada institucionalmente” a través del
proyecto, al fortalecer tanto cuantitativamente su planta de personal de forma permanente, como de forma
cualitativa al mejorar la capacidad técnica de su equipo.197
Algunos de los resultados de las actividades que se desarrollaron a través de las socias implementadoras del
proyecto Alianza para la Acción estuvieron enfocados en apoyar al proceso de Reforma de la Policía
Nacional Civil (PNC), formando a los mandos superiores y medios de la institución y a las 3,000 mujeres
policías (que representan el 10% de la fuerza policial) en la aplicación de la normativa sobre los derechos
de las mujeres en el mandato institucional, las Resoluciones 1325 y la 1820 del Consejo de Seguridad de la
ONU y las normas institucionales sobre el abuso y el acoso sexual. Se apoyó el análisis comparativo de los
cuatro diagnósticos regulares sobre la situación de las mujeres en la PNC que permitió la incorporación de
un enfoque de derechos de las mujeres en el actual proceso de reforma, materializado en la
integración de mecanismos para el abordaje del abuso y el acoso sexual en la Institución, en el marco
del Proyecto Mujeres, Paz y Seguridad. Una de las personas entrevistadas destacó el trabajo realizado en
esta materia y confirmó el impacto que tiene en la prevención de la violencia contra la mujer, tanto al
interior de la PNC como en la atención que se brinda a las mujeres sobrevivientes de violencia.
En el marco del proyecto de la Alianza para la Acción se trabajó, además, en el diseño del Sistema
Integrado de Respuesta a las Sobrevivientes de Violencia, con el cual se han georeferenciado los recursos
para servicios gratuitos a las sobrevivientes de violencia de las 22 cabeceras departamentales y 130
municipalidades y se ha instalado un sistema de orientación y atención electrónica para jóvenes y mujeres
en riesgo para potenciar los mecanismos de protección y reducir el impacto y las secuelas de la violencia.198
Los tomadores de decisiones, líderes y miembros de la comunidad son conscientes y apoyan
públicamente la erradicación de la VCMN.
En Guatemala UNIFEM/ONU Mujeres ha orientado algunas de sus acciones a posicionar públicamente autoridades nacionales, locales, indígenas y no, y en la sociedad en general- la problemática de la VCM y la
importancia de su prevención y atención.
La Campaña ÚNETE del Secretario General ha sido la principal plataforma de acción en este sentido.
196
Naiara Tres-Castro Arnedo. 2011. Fortaleciendo la Institucionalidad de las Mujeres en Guatemala. Informe final de evaluación.
pág. 44
197
pág. 44
198
El sistema georeferenciado está diseñado. Para poder tener información sobre su funcionamiento, es posible ingresar a la página
web http://www.sosmujeres.com
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Muchas de las actividades realizadas
por la Oficina estuvieron orientadas a
Buenas Prácticas
la concientización pública y social
sobre la importancia de prevenir,
sancionar y eliminar la violencia
La realización de intervenciones públicas a nivel local y nacional:
contra las mujeres en la sociedad en su Festivales por la Memoria; obras teatrales y encuentros artísticos.
conjunto,199 ya sea a partir de acciones
El trabajo a nivel comunitario en la promoción de los derechos de
de información, educación y
las mujeres que contaron con la participación de mujeres y hombres
comunicación;200 a través de la
de las localidades.
ampliación del conocimiento y
fortalecimiento del debate público sobre la seguridad de las mujeres en las ciudades;201 o mediante el
trabajo específico con autoridades indígenas, para promover el derecho a una “vida libre de violencia” de
las mujeres indígenas en particular.202
De esta manera, algunas de las
actividades realizadas se centraron en
la socialización de los derechos de las
mujeres, el abordaje y prevención de
la violencia contra las mujeres por
medio de programas radiales cortos,
actividades artísticas y lúdicas como
obras de teatro, festivales de arte y
mujer, y ferias del conocimiento, en el
que se compartieron diferentes
experiencias de abordaje de las
violencias contra las mujeres.
Comentarios de hombres y mujeres de los 48 Cantones de
Totonicapán.
“Con la orientación y el apoyo que UNIFEM/ONU Mujeres nos han
dado ha comenzado a cambiar. Incluso uno de hombre ayuda para
no maltratar a la mujer. Desde las autoridades vemos que las
mujeres sufren mucho maltrato”.
“Hoy hombres y mujeres estamos en equilibrio”.
“Somos los hombres los que debemos concientizarnos, no
necesariamente sólo las mujeres”.
“Los hombres debemos esforzarnos para que hayan espacios para
la participación política de las mujeres”.
Vale la pena resaltar el trabajo
realizado en el marco del Programa Mujeres Indígenas orientado a fortalecer las capacidades de las
mujeres indígenas para ejercer sus derechos humanos que ha logrado incidir en el entorno colectivo y social
de las mujeres pertenecientes a los 48 Cantones del departamento de Totonicapán y posicionar el tema de
prevención de la VCMN.
Esto se refleja en la entrevista con uno de los grupos focales, en la que se evidencia el trabajo realizado
desde 2009, con las tres últimas presidencias de la Junta Directiva del Consejo de Alcaldes Comunales de
los 48 cantones de Totonicapán, de las cuales una –la correspondiente al año 2012- estuvo liderada por una
mujer203; otro de los logros resaltados durante las entrevistas fue la generación de conciencia comunitaria
en lo referente a la importancia de la prevención de la VCMN desde el ámbito familiar y la necesidad de
involucrar a los hombres en los procesos de capacitación y sensibilización en derechos humanos de las
mujeres.
Para algunas de las personas entrevistadas, con respecto a este proceso, “Lo más importante ha sido el
fortalecer la participación de las mujeres en los 48 Cantones. Se comenzó desde la Junta Directiva para
luego hacer réplica en las comunidades. Se comenzó con 15 mujeres y se terminó con más de 75. En el
proceso hubo involucramiento de los hombres alcaldes”. De la misma manera señalan la necesidad
199
Campaña ÚNETE Secretario General
Proyecto Alianza para la Acción en la Prevención de los Asesinatos contra Mujeres en Guatemala, fase 1 objetivo específico
1.1.
201
Proyecto Ciudades Seguras, resultado 1
202
Programa Mujeres Indígenas.
203
La autoridad principal del Consejo de Alcaldes Comunales de los 48 cantones de Totonicapán es la Presidencia y su junta
directiva, la cual es elegida anualmente por medio de un sistema de asambleas comunitarias.
200
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25
“implementar más campañas de prevención que ayuden a cambiar la mentalidad de las nuevas
generaciones”
El proyecto Territorios Libres de Violencia contra las mujeres, iniciado en 2009 en el marco de la
Campaña ÚNETE, se inició en dos territorios, Nahualá, Departamento de Sololá y Sacanillá,
Departamento de Alta Verapaz. El
conversatorio en la comunidad de
Comentarios de las Mujeres participantes en el Proyecto
Territorios Libres de Violencia contra las Mujeres, Sacanillá
Sacanillá confirmó una de las premisas
de estas iniciativas: brindar espacio de
“Nos sentíamos contentas cuando jugábamos.”
juego y ocio a las mujeres es una forma
“Antes solo decíamos adiós cuando nos veíamos y ahora nos
de promover procesos de
conocemos por nombre y preguntamos cómo están las otras
empoderamiento y hacer valer los
mujeres.”
derechos de las mujeres y aportar a la
“Antes me quedaba callada. Mi esposo como cambió después de
reconstrucción del tejido social en la
yo “no me dejo” y lo amenacé con denuncia. Me dejó entrar al
comunidad. Así mismo, demostró
Comité. Ahora me viene a buscar después de las reuniones.”
diferencias en las perspectivas de los
“Los que denuncian, hemos visto que el esposo va a la cárcel. Se
hombres cuando ellos también habían
asustan las otras mujeres porque ven que quedan solas.”
participado en capacitaciones. Sin
embargo, demostró las implicaciones
que existen para las mujeres cuando éstas denuncian a sus parejas ante la ley (la dependencia económica
del aporte masculino, el cual deja de existir al quedarse solas) y, en términos generales, los retos para la
sostenibilidad de los procesos, los cuales a pesar de tener un enfoque comunitario siguen evidenciando la
necesidad de un trabajo continuado de empoderamiento en la vida cotidiana de las mujeres más allá del
trabajo realizado y convocado por un proyecto o facilitador/a en concreto. Parece ser que diversos factores,
como la carga de trabajo doméstico y laboral, impiden que las mujeres se reúnan para realizar actividades
por iniciativa propia y esperan que la convocatoria venga de una facilitador/a externo/a.
Resultados a mediano - largo plazo
Como se señaló al comienzo de esta
sección, resulta difícil lograr
Comentario de una persona entrevistada, SNU
identificar los resultados a mediano“La realidad guatemalteca es muy difícil y pedirle a una Oficina
largo plazo que ha tenido el trabajo
tan pequeña ‘grandes cambios’ es injusto, incluso en agencias
de UNIFEM/ONU Mujeres en
grandes los cambios toman mucho tiempo y se comienza de
Guatemala. Sin embargo, al realizar
cero”.
la reflexión con los actores claves,
sobre los resultados o logros
obtenidos durante el periodo 2008-2011, todos coincidieron en afirmar que, hoy en día el tema de VCMN
esta posicionado en la opinión pública, en algunas instancias estatales y gubernamentales y al interior del
Sistema de Naciones Unidas.
Sin embargo, la naturaleza de la Oficina de Programas de UNIFEM/ONU Mujeres en Guatemala hasta
2012, fue en si misma un reto para la consolidación de los resultados a largo plazo.
A dicha debilidad institucional de la agencia en el país se une la debilidad estatal e institucional que tiene
Guatemala, donde los cambios de gobierno implican una ruptura y dificultan la continuidad de las políticas
públicas y las iniciativas encaminadas a la erradición de la VCMN. Esta situación en el traspaso entre el
poder ejecutivo –saliente y entrante- genera un sentimiento de que “cada cuatro años hay que partir de
cero”, tal y como lo afirmaron varios de los actores clave. Por ende, lo que se señala a continuación es
fundamentalmente la evidencia que hay sobre las brechas y el trabajo que falta por hacer y fortalecer por
parte de ONU Mujeres y otros actores e instituciones clave en relación al resultado Normas y
comportamientos intitucionales y/o sociales apoyan la EVCMN.
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26
Varias de las personas entrevistadas durante el proceso de evaluación afirmaron que después del conflicto
armado la agenda de las mujeres
se centró en las necesidades
Buenas Prácticas
posconflicto -búsqueda de sus
seres desaparecidos,
En un país multiétnico, trabajar con enfoques tradicionales no es
recuperación de la memoria,
solo un medio para influir en el discurso público, sino también es un
incidencia para la creación del
indicador de los cambios en las normas sociales.
Programa Nacional de
Resarcimiento- y que es a partir
En Guatemala es importante, descentralizar el plan de acción y
trabajar directamente con las comunidades. Los enfoques
de 2006 que inicia la
participativos y creativos, tales como el trabajo a través del arte y
construcción de una agenda en la
elementos lúdicos han sido un medio eficaz para compartir
que comienzan a articularse otras
información y un medio para que diferentes miembros de la
demandas, como las relacionadas
comunidad puedan expresar sus creencias y sentimientos.
con la violencia sexual y los
Trabajar tanto con hombres y mujeres resulta relevante debido a la
homicidios actuales o la
“naturalización” de la violencia contra las mujeres en Guatemala.
participación política, entre
Además, de proporcionar a los niños, niñas y jóvenes enfoques y
204
otras , relacionadas
visiones alternativas que pueden contribuir a la prevención de la
directamente o no con el
VCMN.
posconflicto. Es el caso de la
Ley contra el Femicidio (2008), a partir de cuya aprobación todos los actores claves coincidieron en
resaltar que hubo un “antes y después” en materia de VCMN.
Para las personas entrevistadas, a partir de 2008 hay un sentimiento de haber avanzado en el
posicionamiento social que hoy en día tiene el tema de EVCM, la contribución al “entendimiento” sobre lo
que es la VCMN y las implicaciones sociales y, sobre todo, penales que tiene y destacan de manera positiva
el trabajo político que realizó UNIFEM en esta tarea. También resaltan el importante trabajo político con el
que UNIFEM y UNFPA han apoyado las organizaciones de mujeres para el posicionamiento del tema de
VCMN a nivel social, evidenciándolo como “una forma de violencia distinta, que es punible porque es un
delito”.
El trabajo de sensibilización a nivel local ha supuesto un acierto, pero sigue representando un reto. Los
avances a nivel comunitario señalados anteriormente, logrados en los 48 cantones de Totonicapán, el
trabajo de prevención a través de medios artísticos y culturales han sido apuestas que deberían replicarse y
fortalecerse.
El gobierno y los proveedores de servicios son responsables ante las mujeres y las niñas de la
prevención, protección y respuesta a la VCM.
La mayoría de las personas entrevistadas reconocen los avances legales y normativos y el marco
institucional orientado a la erradicación de la VCMN. Sin embargo, manifestaron que, a pesar de su
existencia son entidades con poco fortalecimiento institucional, dada la falta de continuidad en las políticas
de los diferentes gobiernos, el poco presupuesto con el que son dotadas, la dispersión de mandatos y la falta
de coordinación entre las diversas instituciones -SEPREM, DEMI, CONAPREVI, COPAF, etc-. En este
mismo sentido, el Comité de la CEDAW expresó su preocupación no solo por la falta de coordinación sino
por los posibles traslapes de su trabajo,205 además de resaltar que, pese a la adaptación “gradual” del marco
204
Según representantes de ONU-Mujeres Guatemala, esto coincide precisamente con la implementación del
componente Guatemala del programa regional Mujeres Paz y Seguridad, que invierte en fortalecer los esfuerzos de
articulación entre organizaciones de mujeres que trabajan Violencia Contra las Mujeres y las que trabajan justicia
transicional para mujeres, así como entre organizaciones de mujeres e instituciones estatales.
205
CEDAW. 2009. “Observaciones finales del Comité para la Eliminación de la Discriminación contra la Mujer: Guatemala”,
periodo de sesión número 43, informe no. CEDAW/C/GUA/CO/7
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27
legal con los estándares internacionales, “la violencia en general y particularmente la violencia contra las
mujeres, sigue siendo una realidad que representa una prioridad a atender.”206
A pesar de la diversidad de centros de atención a las víctimas de violencia y de los importantes esfuerzos de
las instituciones gubernamentales prestadoras de servicios, algunas de las personas entrevistadas
manifestaron que la dispersión y la duplicidad de esfuerzos dificulta la coordinación entre las entidades y
limita la información y atención adecuada a las mujeres. Esto se agrava en las áreas rurales, donde los
servicios del Estado son escasos, la atención ginecológica y obstétrica requiere de un componente de
atención física, complementado con aspectos psicológicos y de pertinencia cultural, para que las mujeres no
sientan que las re victimizan y las tratan de manera discriminatoria.
En este sentido, algunos actores clave señalaron que el servicio de atención a las mujeres víctimas de
violencia en Guatemala aún carece de una perspectiva de pertinencia étnica y de género. Esto se caracteriza
por la falta de atención a las mujeres en los idiomas maternos (limitante que también se da en la prestación
de otros servicios públicos como educación, salud o justicia, por ejemplo), falta de integralidad de los
servicios con respeto a las costumbres propias, por ejemplo la falta de integración en los servicios de
atención de las comadronas207 y servidores de salud tradicionales y, en muchas ocasiones, una falta de
atención sensibilizada y diferenciada de acuerdo con las necesidades de las mujeres.
Las mujeres y niñas sobrevivientes de violencia demandan y tienen mayor acceso a los servicios
necesarios.
Algunos de los actores claves entrevistados señalaron como positivo el aumento en el número de denuncias
de casos de violencia en contra de las mujeres. Este incremento, señalan, demuestra por lo menos dos
cuestiones: existe un mayor conocimiento de sus derechos y de los mecanismos -legales e institucionalespara la denuncia y la atención de los casos y ha aumentado la confianza en las instituciones que prestan los
servicios, en especial en el Ministerio Público.
Sin embargo, señalan algunas personas entrevistadas, el aumento en la denuncia no se ha traducido en una
respuesta real por parte de las instituciones y en especial del Ministerio Público, para el que el aumento de
denuncias implica “un reto”.
En un país en el que más del 50% de la población es indígena y vive en las zonas rurales, la falta de una
visión pluricultural y multilingue en la prestación de los servicios, desde la que se tengan en cuenta el
idioma, las costumbres y las tradiciones ancestrales, son algunas de las limitaciones que tienen los servicios
de atención a las mujeres sobrevivientes de violencia.
4.1.3 El Mandato Intergubernamental y Normativo de ONU
Mujeres
El trabajo relacionado con la dimensión intergubernamental/normativa del mandato de ONU Mujeres se
realiza principalmente a nivel global desde la sede de ONU Mujeres. El presente estudio de caso investiga
los vínculos entre el trabajo operativo de UNIFEM/ONU Mujeres en Guatemala y el trabajo normativo a
nivel global que antes se llevaba a cabo por entidades como DAW y OSAGI.
Las organizaciones de mujeres se expresan ante los foros intergubernamentales y mecanismos de
protección de derechos humanos y de las mujeres
Durante los últimos años, UNIFEM/ONU Mujeres ha apoyado de forma activa la participación de varias
organizaciones de mujeres guatemaltecas en las sesiones de la CEDAW, del Examen Periódico Universal
(EPU), y en la Comisión de la Condición Jurídica y Social de la Mujeres (CSW por sus siglas en inglés), y
206
Comité para la Eliminación de la Discriminación contra la Mujer 2012. Observaciones finales del Comité para la Eliminación
de la Discriminación contra la Mujer: Guatemala. Adición Información proporcionada por el Gobierno de Guatemala sobre el
seguimiento de las observaciones finales del Comité. 53º período de sesiones (CEDAW/C/GUA/CO/7)*
207
Mujeres que asisten de manera tradicional los partos.
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por medio de INSTRAW les ha brindado capacitaciones para la elaboración de informes alternativos
presentados a los mismos. Según distintas personas entrevistadas, INSTRAW capacitó organizaciones que
lograron presentar al menos cuatro informes alternativos (uno por parte de las organizaciones lésbicofeministas; otro por organizaciones de Mujeres Indígenas Mayas; el tercero por la Convergencia Cívico
Política de Mujeres y el último por la Unión Nacional de Mujeres Guatemaltecas –UNAMG), al último
informe gubernamental de la CEDAW en 2009.
UNIFEM/ONU Mujeres ha apoyado de forma activa la labor del Foro Internacional de Mujeres Indígenas
(FIMI), una red global que se creó en el marco de la Plataforma de Acción de Beijing. A través del
programa regional Mujeres Indígenas, UNIFEM/ONU Mujeres brindó apoyo al FIMI para la realización
de procesos de formación encaminados a aumentar el poder de cabildeo de las mujeres indígenas.
Adicionalmente, el FIMI, con el apoyo de UNIFEM/ONU Mujeres, participó en la sesión número 56 de la
CSW lo que dio como resultado concreto la adopción de la resolución sobre las mujeres indígenas y
rurales. Con el apoyo de ONU Mujeres el FIMI se preparó para participar en la 57 reunión de la CSW en
marzo 2013, la cual se dedicó al tema de la eliminación y prevención de la violencia contra las mujeres y
niñas.
En el contexto de este programa, UNIFEM apoyó el diseño e implementación del Observatorio de Mujeres
Indígenas contra la Violencia, un mecanismo regional impulsado por el FIMI que tiene por objetivo
monitorear la situación de violencia contras las mujeres indígenas en Centroamérica y México. Las
estadísticas generadas por el Observatorio permitirán, entre otras cosas, darle seguimiento al nivel de
cumplimiento de las recomendaciones de los órganos de tratados internacionales en materia de VCM.208
Con respecto al cumplimiento de las recomendaciones emitidas por dichos organismos y tratados al Estado
de Guatemala: algunos de los actores entrevistados afirmaron que "Ninguna de las Instancias de Naciones
Unidas ha cumplido con su rol de seguimiento y observación de las recomendaciones, han sido las
organizaciones de mujeres quienes han presionado al Estado para su cumplimiento. El Sistema de
Naciones Unidas no ha sido garante del cumplimiento de los compromisos del Estado en Materia de
DDHH.”
Sin embargo, es importante resaltar que durante el periodo 2008-2011 UNIFEM/ONU Mujeres apoyó o
acompañó a las instituciones del Estado en varias actividades encaminadas al cumplimiento de las
recomendaciones, entre otras, la difusión de la trilogía de leyes -Ley para Erradicar la Violencia
Intrafamiliar, Ley contra el Femicidio y Ley contra la Violencia Sexual- y el proceso de fiscalización sobre
la implementación de las mismas, el fortalecimiento de las instituciones de justicia que trabajan en el tema
de la VCMN, el fortalecimiento de la SEPREM/DEMI, y el acompañamiento a la Comisionada
Presidencial para el Abordaje del Femicidio.209 Cabe destacar también el apoyo al cumplimiento de la
Resolución 1325 del Consejo de Seguridad a través del Programa Mujeres, Paz y Seguridad.
4.1.4 El Mandato de Coordinación Interagencial de ONU
Mujeres
La coordinación interagencial del Sistema de las Naciones Unidas en el tema de la VCMN en Guatemala se
ha dado en niveles más operativos por medio del programa conjunto financiado por el F-ODM y de la
Campaña ÚNETE del Secretario General.
Programa conjunto
208
ONU Mujeres. Trabajando Contra la Discriminación Étnica/Racial y de Género: Programa para el Ejercicio Efectivo de los
Derechos de las Mujeres Indígenas Latinoamericanas. Febrero 2010 – Febrero 2011. II Informe de Avance para la Agencia
Española de Cooperación Internacional (AECID).
209
Para un listado completo de las recomendaciones emitidas al Estado de Guatemala en materia de VCM, favor de consultar 1) el
Informe de la Relatora Especial sobre la Violencia contra la Mujer, Yakin Ertürk (Misión a Guatemala 2005); las Observaciones
Finales del Comité para la Eliminación de la Discriminación contra la Mujer al Estado de Guatemala (2006 y 2009); y el Informe
del Grupo de Trabajo sobre el Examen Periódico Universal para Guatemala (2008).
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El programa F-ODM Fortaleciendo la Institucionalidad de las mujeres de Guatemala, es un ejemplo del
trabajo conjunto de UNIFEM/ONU Mujeres y otras agencias del sistema para poner fin a la VCM. Según
las partes entrevistadas, las principales contribuciones de este programa fueron el fortalecimiento
institucional de la SEPREM y la DEMI y la
creación de oficinas de la DEMI en los
departamentos de Totonicapán y Chiquimula,
Buenas Prácticas
donde antes de la implementación del programa
no tenían presencia.
El lanzamiento regional de la Campaña ÚNETE, del
Por otro lado, la evaluación final del F-ODM
menciona que hubo una falta de coordinación
administrativa entre las agencias
implementadoras. Para el otorgamiento de
fondos, las socias tuvieron que realizar distintos
procesos sumamente burocráticos con cada una
de las agencias, lo que causó retrasos
importantes en la implementación de las
distintas actividades del proyecto.210
Secretario General, se hizo en Guatemala en el
año 2009. Esto le dio una visibilidad importante.
Este lanzamiento y la continuidad de la campaña
ha jugado un papel importante en el esfuerzo para
“posicionar el tema de la VCM” en el ámbito
público. Esto a pesar de las críticas que también
existen sobre el uso de recursos y el tipo de
actividades lúdicas apoyadas.
La evaluación también hace hincapié en el hecho de que no hubo una gestión por resultados conjunta, ya
que cada agencia se enfocaba en la implementación de sus propias actividades. Adicionalmente, algunos
representantes de las agencias del SNU resaltaron durante las entrevistas la necesidad de desarrollar sólidos
indicadores de género para mejorar el sistema de monitoreo y evaluación en el tema de la VCMN.
Campaña ÚNETE
De acuerdo a algunas personas entrevistadas, el lanzamiento regional de la Campaña ÚNETE para
Latinoamérica y el Caribe en Guatemala en 2009, tuvo como consecuencia que la coordinación y los
esfuerzos de las agencias del SNU fueran más importantes en Guatemala que en otros países
latinoamericanos. Según las percepciones de algunas personas entrevistadas, antes de la Campaña el tema
de la violencia contra las mujeres no tenía mucha visibilidad en el país, por lo que los esfuerzos realizados
dentro del marco de la Campaña contribuyeron a la movilización de las instituciones estatales, la sociedad
civil y la población guatemalteca. Muchos de los procesos que acompañó UNIFEM/ONU Mujeres desde
2008 hasta la fecha (descritos en la sección 4.1.2) surgieron en el marco de la Campaña, concebida
realmente como un esfuerzo multianual, con picos de trabajo en ciertos periodos del año.211
Mucho del trabajo con el Organismo Judicial y con el Sector Justicia ha estado enmarcado en la Campaña.
Sin embargo, en opinión de una de las personas entrevistadas “no todo lo que se hace en el tema de VCMN
se enmarca en la Campaña, puesto que hace falta identificación con la iniciativa”. La falta de identificación
con la Campaña se evidencia tanto entre las organizaciones sociales y de mujeres como al interior del
Sistema de Naciones Unidas.
En cuanto el relacionamiento de la sociedad civil, se obtuvieron afirmaciones sobre el sentir que “la
Campaña genera competencia entre la sociedad civil y el Sistema de Naciones Unidas”, y relacionadas a la
alta inversión económica que se realiza a las actividades lúdicas que se desarrollan, como los conciertos.
Con respecto al relacionamiento con el Sistema, algunas de las personas entrevistadas afirmaron que
“desafortunadamente, no todas las agencias están coordinadas en el marco de la Campaña durante todo el
año, no todas manejan el tema”. Esta situación evidencia la necesidad de realizar más esfuerzos para
comunicar de qué se trata la Campaña y cuáles son sus objetivos “nos quedamos cortos en comunicar e
informar lo que se hace y dar a conocer su impacto”, afirma una de las actores clave.
210
211
Vega, Melissa (2012) “Gobierno y Sociedad Unen Esfuerzos para Poner Fin a la Violencia contra las Mujeres: Guatemala”.
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A nivel estratégico no se evidencia una visión coordinada del SNU de cara al gobierno en este tema.
Varios de los entrevistados señalaron, por ejemplo, la necesidad de definir de forma más clara el rol de
cada agencia en la lucha contra la VCMN. Se percibe el establecimiento de la oficina de país de ONU
Mujeres en Guatemala como una oportunidad para que ONU Mujeres tome el liderazgo en las cuestiones
de género y particularmente en lo referente al trabajo del SNU en VCMN y colabore con las demás
agencias en la identificación de su función en esta área.
Cabe destacar que, por ser una Oficina de Programa, los recursos de UNIFEM/ONU Mujeres en Guatemala
durante el periodo 2008-2011, y por lo tanto el rol que desempeñaba, eran muy limitados. Por consiguiente,
no actuó como agencia colíder del GIGAM, de la Campaña ÚNETE, ni del Programa Conjunto, mientras
que el rol de agencia líder fue asumido por UNFPA. Solo fue a partir del 2012 que ONU Mujeres empezó a
liderar la coordinación interagencial en el GIGAM y, en particular, asumió el liderazgo del trabajo del SNU
en el ámbito de VCMN, particularmente, de la Campaña del Secretario General y el GIGAM.
4.1.5 Sostenibilidad de los Resultados
La siguiente tabla resume los factores clave que pueden contribuir o dificultar la sostenibilidad (es decir, la
continuación y adaptación dinámica) de los resultados para poner fin a violencia contra la mujer realizados
en Guatemala hasta la fecha.
Figura 4.1
Factores que pueden afectar la sostenibilidad
Dimensión
Factores de apoyo
Retos/Factores limitantes
Aspectos internos
del funcionamiento
de UNFEM/ONU
Mujeres
Establecimiento de Oficina de País a
partir de 2012
Posicionamiento estratégico de ONU
Mujeres en el tema
La ausencia de planificación estratégica lleva a una
cantidad de iniciativas diversas y dispersas.
La limitación de recursos limita la posibilidad de dar
un seguimiento apropiado
El funcionamiento por proyectos de plazos
determinados
La ausencia de una estructura de Oficina País
hasta el año 2012
Capacidad de
incidencia de las
mujeres y
organizaciones
defensoras de sus
derechos
organizaciones de mujeres históricas,
diversas, fuertes y posicionadas
La ausencia de integración entre las
organizaciones de mujeres y de mujeres indígenas
Las organizaciones de mujeres, a pesar de sus
fortalezas, están polarizadas y politizadas.
Las diferencias de enfoques para el abordaje en la
atención y prevención de la VCM
Posiciones encontradas en cuanto al
relacionamiento con el Estado, la disposición de
hacer interlocución y alianza entre organizaciones e
instituciones públicas.
Las diferencias generacionales entre algunas de
las organizaciones.
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Dimensión
Factores de apoyo
Institucionalización
del tema de VCM
en los
mecanismos e
instituciones
relacionadas
Se cuenta con un avanzado marco legal
y normativo que propende para la
EVCMN.
Guatemala tiene una diversa estructura
de mecanismos para la protección de los
derechos de las mujeres y la atención a
las víctimas.
Compromiso a nivel del Ejecutivo del
cumplimiento de los compromisos
internacionales en materia de EVCM.
El Ministerio Público ha incorporado en
su planificación estratégica en enfoque
de atención a las mujeres sobrevivientes
de violencia.
Prácticas de algunas autoridades
ancestrales (tales como las consignas
que pasan de una administración a la
otra y el periodo de traspaso)
La creación de juzgados especializados
en femicidio y otras formas de violencia
contra las mujeres .
Los cambios de gobierno muchas veces significan
un alto y una reorientación en el camino
La Institucionalidad de la Mujer es frágil y
susceptible a posibles reformas durante el actual
Gobierno.
Falta de asignación de recursos por parte del
ejecutivo.
Los mecanismos de la mujeres tienen
competencias difusas y dispersas.
La dispersión de la información y falta de
coordinación entre las Instituciones produce un
traslape de funciones y de tareas que genera
confusión entre las beneficiarias al momento de
acudir para la prestación de los servicios.
Necesidad de integrar el componente pluricultural,
multilingüe y de insertar las prácticas tradicionales
en la prestación de servicios de atención.
Estrategias de
formación de
empoderamiento
de las mujeres
Beneficios positivos para las mujeres del
tiempo compartido en las actividades
lúdicas
Mayor intolerancia a situaciones de
violencia y mayor capacidad de denuncia
La dependencia de la “facilitadora” o el “facilitador”
externo para organizar esos espacios compartidos
Vínculo entre la situación económica de la mujer y
su capacidad/posibilidad de denuncia (pese a
conocer sus derechos ante la ley no denuncia a su
pareja por su situación de dependencia económica)
4.2
Retos/Factores limitantes
Pregunta Estratégica #2: Lecciones aprendidas sobre
las Fortalezas y Debilidades Organizacionales en la
Gestión de la EVCM
La evaluación también busca identificar las fortalezas y debilidades de UNIFEM/ONU Mujeres en
cuestiones relacionadas con la gestión de la agencia y las lecciones que se puedan extraer de cara al futuro.
Si bien el estudio de caso se centra en el trabajo temático en EVCM, muchas de estas fortalezas y
debilidades organizativas se aplican a otras áreas de trabajo de UNIFEM/ONU Mujeres.
Dependencia de una oficina sub-regional
La oficina de Programas de UNIFEM en Guatemala dependía de la Oficina Sub-Regional para México,
Centroamérica, Cuba y República Dominicana, ubicada físicamente en México. Esa dependencia no sólo
suponía una falta de autonomía (y falta de estrategia propia como se señala a continuación), sino que
también generó una percepción de lentitud en los procesos de aprobación y en los desembolsos.
Capacidad y funcionamiento de la oficina
Antes del 2008, UNIFEM operaba en Guatemala sin una estrategia de país definida a través de la
implementación no coordinada de los tres proyectos principales que se ejecutaban en el país bajo la
dirección de la oficina sub-regional: Mujer y Desarrollo Local (MYDEL), Agenda Económica de las
Mujeres (AGEM), y Mujeres, Paz y Seguridad.
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El financiamiento del F-ODM (que se inició en 2008) se considera un “parteaguas” que dio una primera
oportunidad para planificar en forma conjunta y establecer una oficina que unía a todo el equipo de
UNIFEM en el país. Se crearon mayores espacios de coordinación e intercambio entre el personal. Sin
embargo, se siguió funcionando por medio de los proyectos y programas concretos.
A comienzos del año 2011, la ya creada ONU Mujeres contaba en Guatemala con 12 personas trabajando
para la agencia en el país, incluyendo cuatro coordinadoras de programas (Mujeres, Paz y Seguridad,
Ciudades Seguras, Programa Regional de Mujeres Indígenas, y AGEM). Tres de las coordinadoras de
programas tenían a su cargo distintos componentes del trabajo para prevenir la VCM. De las(os) 12
integrantes del personal en 2011, 10 de ellas(os) contaban con contratos temporales vinculados a proyectos
concretos y la mayoría de esos contratos llegan a su fin durante el primer trimestre de 2013.212 En 2012,
ONU Mujeres empezó a ejecutar su estrategia de descentralización y la composición y naturaleza de la
oficina de Guatemala empezó a cambiar con la llegada de la Representante de ONU Mujeres y el
reclutamiento de los puestos del modelo básico de oficina de ONU Mujeres -en términos de personal- para
una oficina de Representación de la organización, tal y como se plantea en la estrategia de
descentralización aprobada en 2012.213
Gestión de la información y el conocimiento
En Guatemala, se evidencia una falta de sistemas internos de gestión de la información sobre los proyectos
y de sistematización/documentación del trabajo durante el periodo 2008-2011. Por ende, la memoria
institucional reside en las diferentes personas que han trabajado en la organización durante este período.
Esto no sólo fue un reto para la oficina en Guatemala, sino para toda la organización.
Estrategia de país
Como ya ha sido mencionado, en los años previos a 2012, la oficina de ONU Mujeres en Guatemala
operaba a través de la implementación de los proyectos y programas que formaban parte de la Estrategia
Subregional de la agencia y los resultados del trabajo en Guatemala eran reportados a través de la Oficina
Subregional con sede en México. El trabajo de VCM se hizo en el marco regional y de un programa
nacional, como el F-ODM. La primera estrategia formal de país se elaboró para el periodo 2012-2013 y
enmarcó el trabajo de la organización en dos de las áreas temáticas de ONU Mujeres: paz y seguridad y
empoderamiento económico. Este plan da una orientación general sobre el tema, pero no profundiza sobre
el porque se definen ciertas líneas (y no otras) , donde se va a trabajar, y como se articulan todas las
iniciativas para conllevar a ciertos resultados.
Marcos corporativos de planificación y reporte de resultados
El plan estratégico de ONU Mujeres, que cubre el periodo 2011-2013, introdujo una nueva forma de
conceptualizar los resultados por áreas temáticas tales como liderazgo y participación de las mujeres,
empoderamiento económico de las mujeres, prevención de violencia contra las mujeres y niñas y
ampliación de los servicios, el liderazgo de las mujeres en los procesos de paz, entre otros. Al mismo
tiempo, la oficina en Guatemala recibió directrices desde la sede sobre la necesidad de focalizar el trabajo y
no cubrir todas las áreas temáticas contempladas por la organización.214 Esta directriz conllevó que la
oficina continuara su trabajo en VCM, pero lo clasificara en el área de Paz y Seguridad y reportara sus
resultados en esta área.
212
Estas cifras para Guatemala se presentaron en el “UN Women Presence Matrix” el Anexo VII del UN Women, Field Capacity
Assessment – Minimum Requirements for UN Women’s Presence at the Country Level,” 2011
213
Executive Board of the United Nations Entity of Gender Equality and the Empowermnet of Women, Regional Architecture,
UNW/2012/5, 24 April 2012.
214
Por ejemplo, violencia contra las mujeres, empoderamiento económico, liderazgo y participación política,
VIH/SIDA, presupuestos sensibles al género, situaciones de conflicto y pos-conflicto.
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Rol de la agencia en el país: navegando en medio de una realidad compleja y
polarizada
Entre las organizaciones de mujeres en Guatemala existen distintas visiones, posiciones y prioridades. Para
algunas de las personas consultadas, ONU Mujeres ha tenido la capacidad de relacionarse con diferentes
expresiones de las organizaciones y no perder los objetivos de su rol y mandato. Para otras partes
consultadas, en ocasiones, la agencia ha carecido de una apertura a diálogo político con algunas de las
diferentes expresiones. Algunas personas entrevistadas perciben y reclaman que UNIFEM/ONU Mujeres
apoyó más a las instituciones del Estado que a las organizaciones de mujeres durante este periodo. Sin
embargo, otros actores claves, afirmaron tener la impresión de que la agencia ha apoyado y trabajado más
con las organizaciones de mujeres que con la institucionalidad.
Estas distintas perspectivas señalan la naturaleza del reto que tuvo UNIFEM y que tiene ONU Mujeres en
Guatemala y el rol que juega como entidad del Sistema de la ONU pero con vínculos cercanos al
movimiento de mujeres. El hecho de que una diversidad de organizaciones de mujeres hayan participado en
las consultas para este estudio de caso demuestra el interés que ellas tienen en el papel que juega ONU
mujeres y en su orientación estratégica en el futuro.
Implicaciones para ONU Mujeres
Con la creación de ONU Mujeres en julio de 2010 y su puesta en marcha en enero de 2011, se empiezan a
cambiar algunos elementos de los procesos que afectaban de forma negativa la labor de la organización en
el tema de la VCMN. Sin embargo, durante las entrevistas y la revisión documental para este estudio de
caso también se generaron algunas interrogantes sobre los siguientes puntos:

Creación de Oficina de País: Algunas personas están a la expectativa de ver cuán distinto va a ser
la forma de operar de la nueva Oficina de País de ONU Mujeres en Guatemala y la relación que
tendrá con la oficina regional en Panamá.

Capacidades para asumir el mandato: Si bien hay mucha expectativa para ONU Mujeres y el rol
que puede jugar a nivel político y en cuanto a la coordinación interagencial, en la práctica no está
claro cuál va a ser su capacidad (en términos financieros, humanos, de sistemas) para cumplir con
estas expectativas.

Focalización de la estrategia: Para poder actuar de forma más estratégica, ONU Mujeres tendrá que
focalizar aún más su trabajo en el tema de la VCMN y esto puede afectar sus relaciones con socias
y con distintas organizaciones de mujeres. En este proceso de definición de estrategia es importante
la transparencia en la toma de decisiones y la conformación y los aportes del Consejo Asesor
Nacional que se prevé para la oficina de ONU Mujeres en Guatemala.
4.3
Pregunta Estratégica #3: El Posicionamiento
Estrategico de ONU Mujeres
En esta sección se presenta el análisis sobre la pregunta de evaluación relacionada con el posicionamiento
estratégico de ONU Mujeres con relación a su valor agregado en la prevención y respuesta de la VCM en
Guatemala.
Factores Contextuales
El posicionamiento estratégico al que se hará referencia está directamente relacionado con el contexto de
polarización que se vive en Guatemala y en específico la diversidad de las organizaciones de mujeres, la
falta de continuidad general de las políticas públicas, la debilidad de la institucionalidad -especificamente la
de las mujeres- y la ausencia de una efectiva implementación de las políticas relacionadas con la VCMN,
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factores que obstaculizan y, algunas veces, reversan procesos sociales y de fortalecimiento de las acciones
relacionadas para la erradicación de la VCMN.
Es importante, además, tener en cuenta el contexto interno que tuvo UNIFEM entre 2008-2011. Como se
ha hecho referencia en otras secciones el hecho de haber sido una Oficina de Programa supeditada de la
Oficina Subregional de México, limitó su gestión de recursos, la implementación de proyectos, su liderazgo
en la coordinación interagencial, así como su capacidad de incidencia y de interlocución a nivel Estatal.
La mayoría de los actores entrevistados hicieron referencia a este contexto en el momento de contestar a la
pregunta relacionada con el posicionamiento estratégico que pensaban podía tener ONU Mujeres y
reconocieron que la agencia “ha hecho un aporte inmenso a pesar de las limitaciones; ha trabajado con
recursos limitados siendo una Oficina de Programa y no una Oficina de País” y que, en ese sentido, “se ha
ganado el posicionamiento” que tiene en la actualidad.
Avances en la definición y puesta en práctica del mandato de ONU Mujeres
La actual Oficina de ONU Mujeres en Guatemala parte de una serie de ventajas y retos que enfrentar en la
transición a Oficina de País. Cuenta con reconocimiento por parte de las otras agencias del Sistema de
Naciones Unidas, de la sociedad civil y del Estado y es considerada una importante asesora técnica y una
aliada política clave para algunos sectores de la sociedad civil con los que trabaja.
El nombramiento en mayo de 2012 de la actual Representante de ONU Mujeres en Guatemala ha reforzado
ese posicionamiento, dándole mayor nivel a la interlocución con el Estado y de articulación con el Sistema
de Naciones Unidas, con algunas instituciones gubernamentales y con el movimiento de mujeres. Sin
embargo, esto ha generado también grandes expectativas, lo cual sitúa a la agencia ante dos retos muy
importantes: “la necesidad de posicionar su mandato” y “la limitación de los recursos disponibles”.
Durante la misión de evaluación pudo observarse que muchos de los actores clave -estatales, del Sistema de
la ONU y de la sociedad civil- no tienen claro cuál es el rol que una agencia como ONU Mujeres puede
tener en un contexto como el guatemalteco. De ahí la necesidad de posicionar el mandato y rol de ONU
Mujeres en sus tres ámbitos de acción (operativo, normativo/intergubernamental, y de coordinación).

El proceso de “reingienería” al que esta sometida la Oficina de ONU Mujeres en Guatemala ha
generado una expectativa muy alta del papel que puede jugar a nivel nacional. Por esta razón es
necesario realizar una mirada hacia adentro en el diseño de marcos estratégicos propios que se
articulen con los de otras agencias que trabajen el tema de VCMN, particularmente con UNFPA
y/o UNICEF, complementando las prioridades de ONU Mujeres con las prioridades de éstas,
armonizando planificaciones estratégicas que permitan, no solo la transversalización del trabajo en
materia de género, sino el trabajo de prevención de la VCMN y la descentralización del trabajo a
nivel territorial.

ONU Mujeres Guatemala se enfrenta a un contexto polarizado en la sociedad civil y en el
relacionamiento de ésta con el Estado. Diferentes actores entrevistados hicieron énfasis en el
fortalecimiento de su rol político, dando posibilidad a un “diálogo político” con las diferentes
expresiones del movimiento de mujeres, potenciando un papel mediador y articulador de puntos y
acuerdos mínimos.
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5.
Recomendaciones para ONU Mujeres
Guatemala
En esta sección el equipo de evaluación ofrece algunas recomendaciones que podría considerar la Oficina
de País de cara al futuro. Es importante recalcar que estas recomendaciones surgen de una corta e intensa
semana de entrevistas y retroalimentación con el equipo de ONU Mujeres y con el Grupo de Referencia
Nacional en el tema de erradicación de la violencia contra la mujer. Posteriormente, se profundizó en la
revisión documental.
En general, las recomendaciones se orientan hacia cómo maximizar efectos, con los recursos aún limitados
que puede tener la Oficina de País. En este sentido, reconocemos la constante labor que realiza la Oficina
para manejar la tensión entre las múltiples demandas (con base en necesidades y expectativas) y su
capacidad de respuesta.
34) Profundizar el enfoque multiétnico y pluricultural en el trabajo, asegurando la participación real de
mujeres de los pueblos Maya, Garifuna y Xinca en los procesos y diálogos políticos que se
establezcan.
35) Parte del posicionamiento estratégico de ONU Mujeres se debe al potencial papel político y
articulador que puede jugar en el contexto guatemalteco. Esto supone una labor fuerte en cuanto a
“tender puentes” con diferentes organizaciones de mujeres y entre estas organizaciones de la
sociedad civil y el Estado,
36) Construir un marco estratégico de más largo plazo en el tema de EVCMN. Si bien ONU Mujeres,
en estos momentos, opera con una planificación bianual, es importante contar con una visión
marco de resultados y una teoría de cambio propia que se visualice en el largo plazo (5 o más
años). La estrategia debe describir como ONU Mujeres va a focalizar el trabajo en este tema. La
estrategia marco también se debe armonizar con las otras agencias del sistema ONU en el país
para que contribuya a complementar los vacíos existentes.
37) El marco estratégico, con su respectivo focalización, debe describir lo que significa el vínculo
entre EVCMN y el trabajo en un contexto de posconflicto. Es importante no solo describirlo en
términos conceptuales sino también en lo que supone en términos prácticos -qué se hace o no se
hace al trabajar con ese enfoque-. El continuo de la violencia y por ende el vínculo con temas de
paz y seguridad tiene sentido en el contexto guatemalteco, pero no tiene sentido reportar todo el
trabajo en EVCMN como parte de los resultados corporativos en el área de paz y conflicto.
38) Pensar en un acompañamiento a la sociedad civil de manera estratégica y no coyuntural con
procesos y proyectos a mediano y largo plazo que impliquen un acompañamiento, político y
financiero sostenido y constante fue una de las demandas que, de manera reiterada, manifestaron
algunas de las personas entrevistadas. Este acompañamiento debe realizarse a las diversas
expresiones de la sociedad civil.
39) Apoyar las instituciones de la mujer y actores relevantes para reactivar el Plan Nacional de
Prevención y Erradicación de la Violencia contra las Mujeres. El PLANOVI llega a su fin en el
2014 y es un buen momento para llamar a la reflexión sobre el pasado y lo que se necesita hacia el
futuro. Es importante que el trabajo de ONU Mujeres se de dentro de un plan de acción nacional
que permita articular todos los esfuerzos tanto preventivos como de atención.
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40) Fortalecer y respaldar, política y técnicamente, la institucionalidad pública para las mujeres. En
parte debido a la coyuntura que vivía el país en el momento de la visita de campo de este estudio
de caso, se señaló varias veces la necesidad de proteger la institucionalidad de la mujer y
fortalecerla en todas sus expresiones, incluyendo la Oficina Municipal de la Mujer, la SEPREM, la
DEMI, la CONAPREVI, y las Oficinas de Género en Ministerios clave, etc. La institucionalidad
de la mujer es importante para todas las áreas temáticas de ONU Mujeres, no solo la VCMN. Sin
embargo, sigue siendo una estrategia válida en los esfuerzos para eliminar la VCMN.
41) Considerar cómo fortalecer la regionalización y el trabajo descentralizado usando una estrategia
interagencial. Por un lado, varios actores entrevistados señalaron que el ámbito descentralizado es
apropiado para el trabajo en la EVCMN. Por otro lado, las experiencias con autoridades
ancestrales, por ejemplo, muestran mayores posibilidades en cuanto a institucionalización del
tema. Sin embargo, un trabajo a largo plazo en territorios requiere capacidad y recursos para
acompañar procesos. Otras agencias del sistema tendrán experiencias complementarias y mayores
capacidades en términos de recursos para participar.
42) Con relación al aspecto interagencial, es necesario clarificar el mandato de coordinación que tiene
ONU Mujeres a nivel del Sistema de Naciones Unidas y cómo se materializa este trabajo en la
Oficina de País. Hay muchas demandas de parte de las agencias del sistema para que ONU
Mujeres juegue un papel más fuerte en su apoyo a la transversalización de género y del trabajo en
EVCMN. Se mencionó, por ejemplo, el deseo de desarrollar enfoques e indicadores comunes para
las agencias del sistema, y la necesidad de compartir lecciones aprendidas. Sin embargo, al inicio
lo más importante puede ser compartir los marcos estratégicos y tener claridad de “quien está
haciendo qué” en lo referente a la EVCMN.
43) Fortalecer sistemas de monitoreo y de gestión del conocimiento que permita dar cuenta de los
procesos apoyados por ONU Mujeres y cómo estos procesos han contribuido a generar cambios en
la situación de VCMN en el país. La gestión del conocimiento incluye también la posibilidad de
extraer y compartir fácilmente lecciones aprendidas sobre los enfoques, resultados positivos y
negativos, y otras dimensiones del trabajo en VCMN.
44) Posicionarse a través de una estrategia de comunicación adecuada, tanto hacia fuera como hacia lo
interno. En la mayoría de las entrevistas realizadas se evidenció un desconocimiento general del
rol, la estratégia, ámbito de trabajo, las prioridades y las limitaciones de la Oficina -tanto las
pasadas como las actuales- con relación al Estado, el movimiento de mujeres y el SNU. A nivel
interno en ONU Mujeres, se reconoció la falta de un sistema de comunicación claro y eficaz que
permita la coordinación de las actividades y la unión de esfuerzos y ayude a la sostenibilidad y
visibilidad de los resultados.
45) Potenciar el rol de promotor del cumplimiento de las obligaciones en materia de derechos
humanos de las mujeres por parte del Estado guatemalteco. En especial la implementación de la
CEDAW y de su protocolo facultativo, la Convención Belem do Pará y el seguimiento de
recomendaciones que en materia de erradicación de la VCMN han realizado diversos mecanismos
del Sistema de NU, por medio de la asesoría técnica necesaria, tanto a las instituciones estatales
como a las organizaciones de mujeres que trabajen los temas EVCMN.
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Anexo I:
Términos de Referencia del
Estudio de Caso y Matrices de la
Evaluación
Purpose
Approach
CSO focus
interviews or focus
National
Government
interviews
UN-Women
interviews
UN CMT interviews
Observation
LINES OF INQUIRY
METHODS
Country records
Case Studies
√
at country level?
√
√
over time?
√
√
√
√
√
√
√
√
√
√
√
√
√
√
√
√
√
√
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National
Government
interviews
UN CMT interviews
CSO focus
interviews or focus
UN-Women
interviews
Observation
LINES OF INQUIRY
METHODS
Country records
Case Studies
√
√
√
√
√
√
√
√
√
√
√
√
√
√
√
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Anexo II:
Documentos Revisados
Documentos de ONU Mujeres/UNIFEM:
ONU Mujeres Sub-Regional Strategy Mexico, Central America, Cuba and Dominican Republic 2008-2009
ONU Mujeres LAC Regional Strategy 2008-2011
Documentos relacionados a los proyectos de ONU Mujeres/UNIFEM o del Fondo
Fiduciario de la ONU
Cecilia Umul. Agosto 2012. Las mujeres indígenas, forjando liderazgo desde la cosmovisión de su pueblo:
Sistematización de buenas prácticas implementadas en el Programa de Mujeres Indígenas de ONU Mujeres
2009-2012.
Documento del Programa Conjunto Fondo para las metas del milenio Ventana de Género: Fortaleciendo las
Institucionalidad de las Mujeres en Guatemala. 2008. UNFPA/UNIFEM/Sistema de Naciones Unidas en
Guatemala/FAO/OPS/OMS/PMA/PNUD/SEGEPLAN/SEPREM/DEMI.
Fondo para la Consolidación de la Paz: Documento de Proyecto. Noviembre 2011. PNUD/ONU
Mujeres/UNODC/Ministerio Público/Ministerio de Gobernación/Instituto Nacional de Ciencias Forenses.
Gloria Araya, Grace Guerrero, Lucia Valdivieso y Henry Morales. Trabajando Contra la Discriminación
Étnica/Racial y de Género: Programa para el Ejercicio Efectivo de los Derechos de las Mujeres Indígenas
Latinoamericanas. Noviembre 2012. Evaluación final para el periodo 2009-2012. ONU Mujeres.
Julie Lafrenière, Mary Jane Real y Ricardo Wilson-Grau. Octubre 2011. The United nations Trust Fund to
End Violence Against Women Mapping of Grantees’ Outcomes 2006 to Mid-2011. ONU Mujeres.
Naiara Tres-Castro Arnedo. 2011. Fortaleciendo la Institucionalidad de las Mujeres en Guatemala. Informe
final de evaluación.
Partnership for Action: Preventing Murders against Women in Guatemala. UNFPA/Sistema de las
Naciones Unidas en Guatemala/UNIFEM.
Peace Building Fund Annual Programme Narrative Progress Report. Enero – Diciembre 2011.
PNUD/ONU Mujeres/UNODC/Ministerio Público/Ministerio de Gobernación/Instituto Nacional de
Ciencias Forenses.
Programa Mujeres Paz y Seguridad en América Latina: Componente Guatemala. Hojas de datos. ONU
Mujeres.
Rosa Sánchez del Valle. Diciembre 2011. Sistematización de la Experiencia de la Alianza para la Acción.
Informe de consultaría.
Trabajando Contra la Discriminación Étnica/Racial y de Género: Programa para el Ejercicio Efectivo de los
Derechos de las Mujeres Indígenas Latinoamericanas. Febrero 2010 – Febrero 2011. II Informe de Avance
para la Agencia Española de Cooperación Internacional (AECID). ONU Mujeres.
United Nations Trust Fund to End Violence Against Women. 2011. Informe Annual de Avance.
Women, Peace and Security in Colombia and Guatemala. Septiembre 2010 – Agosto 2011. Informe al
donante AECID. ONU Mujeres.
Working Against Ethnic and Gender Discrimination: Programme for the Effective Exercise of Latin
American Indigenous Women’s Rights. 2009. Documento de proyecto. UNIFEM.
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Zonta International Grant Project Final Report Form. Noviembre 2008 – Octubre 2010. Informe al
donante para el proyecto Ciudades Seguras. ONU Mujeres.
Zonta International Grant Project Final Report Form. Informe anual 2011. Informe al donante para el
proyecto Ciudades Seguras. ONU Mujeres.
Otros Documentos
ACNUDH. 2012. “Informe de la Alta Comisionada de las Naciones Unidas para los Derechos Humanos
sobre las actividades de su oficina en Guatemala” Presentado al Consejo de Derechos Humanos durante el
periodo de sesión número 19, Informe no. A/HRC/19/21/Add.
Banco Mundial. List of Economies 2012.
http://siteresources.worldbank.org/DATASTATISTICS/Resources/CLASS.XLS Consultado el 7 de
diciembre de 2012.
Banco Mundial LAC. 2011. “Crime and Violence in Central America: A Development Challenge”: p. ii-iii;
UNODC. 2012. “Trafficking of Women and Girls in Central America” en Transnational and Organized
Crime in Central America and the Caribbean: p. 53-57.
CAT. 2006. “Conclusiones y recomendaciones del Comité contra la Tortura”. Sesión 36, Informe no.
CAT/C/GTM/CO/4.
CEDAW. 2009. “Observaciones finales del Comité para la Eliminación de la Discriminación contra la
Mujer: Guatemala”, periodo de sesión número 43, informe no. CEDAW/C/GUA/CO/7.
CEPAL. 2013. “Panorama Social de América Latina 2012”, Anexos Estadísticos en Formato Excel.
Comisión de Derechos Humanos. 2005. “Informe de la Relatora Especial sobre la violencia contra la mujer,
sus causas y consecuencias, Yakin Ertürk: Misión a Guatemala”, 61 período de sesiones,
E/CN.4/2005/72/Add.3.
Comisión Interamericana de Derechos Humanos. 2011. “Access to Justice for Women Victims of Sexual
Violence in Mesoamerica”. Organización de los Estados Americanos, San José.
Comisión Interamericana de Mujeres. 2011. “Advancing Gender Equality in the Context of Decent Work”.
Organización de los Estados Americanos, Washington, DC.
Comisión Interamericana de Mujeres. 2010. “Análisis situacional: VIH y violencia contra las mujeres en
Guatemala”. Organización de los Estados Americanos, Washington, DC: p. 27-37.
Consejo de Derechos Humanos. 2010. “Informe del Relator Especial sobre el derecho a la alimentación, Sr.
Olivier De Schutter: Misión a Guatemala”, periodo de sesión número 13, informe no. A/HRC/13/33/Add.4.
Corte Constitucional de Guatemala. “Constitución Política de la República de Guatemala. (Aplicada en
fallos de la Corte Constitucional)”, Guatemala, agosto de 2002.
Departamento de Atención a la Víctima, Ministerio Público. 2011. “Directorio Red Nacional de Derivación
para la Atención a las Víctimas de Delito”.
Gobierno de Guatemala. 2012. “Informe nacional presentado con arreglo al párrafo 5 del anexo de la
resolución 16/21 del Consejo de Derechos Humanos: Guatemala” Presentado al Consejo de Derechos
Humanos durante el periodo de sesión número 14 sobre el Examen Periódico Universal.
María Luisa Cabrera Pérez-Armiñan. Guatemala 2009. Mapeo de Organizaciones de sociedad civil en el
tema Violencia Contra las Mujeres.
PNUD. Índice de Desarrollo Humano 2011: Anexos Estadísticos.
junio 2013
43
Procurador de los derechos humanos. 2012. “Estadísticas sobre homicidios contra la mujer: De enero a
diciembre 2007-2011”. Guatemala.
Procurador de los Derechos Humanos. 2012 “Situación de los Derechos Humanos en Guatemala”
Presentado a la Comisión Interamericana de Derechos Humanos durante su periodo de sesión no.146,
Guatemala.
Procurador de los Derechos Humanos. 2012. “Violencia Sexual en Contra de Niñas, Adolescentes y
Mujeres en Guatemala” Presentado al Relator Especial sobre la venta de niños, la prostitución infantil y la
utilización de niños en la pornografía: Guatemala.
Stanford Victoria, Guatemala: del genocido al femicidio. Guatemala: F&G Editores, 2008.
UNODC. “Intentional homicide, count and rate per 100,000 population (1995-2011)” Estadísticas sobre los
homicidios http://www.unodc.org/unodc/en/data-and-analysis/homicide.html
Sitios Web
Índice Universal de los Derechos Humanos. http://uhri.ohchr.org/es/
Foro Internacional de Mujeres Indígenas. http://www.fimi-iiwf.org/
Ministerio Público de Guatemala. http://www.mp.gob.gt
Secretaría Presidencial de la Mujer. http://www.seprem.gob.gt
Defensoría de la Mujer Indígena. http://demi.gob.gt
junio 2013
44
Anexo III: Actores y actoras
entrevistadas
Organización
Cargo
Método de Consulta
Número de
personas
entrevistadas
ONU Mujeres
Oficina de ONU Mujeres en
Guatemala
Representante de ONU Mujeres
en Guatemala
Entrevista Individual
1
Guatemala
Coordinadora del área de
Mujeres, Paz y Seguridad
1
ONU Mujeres
Encargada del Programa
Mujeres Indígenas
1
ONU Mujeres
Encargada del Proyecto
Ciudades Seguras
1
ONU Mujeres
Encargada de Comunicación
1
Guatemala
Equipo de asistentes de ONU
Mujeres
Entrevista de Grupo
¿cuántos?
Organizaciones socias en Guatemala
Gobierno Nacional
Mesa Interinstitucional para la
Implementación de las
Resoluciones del Consejo de
Seguridad de las Naciones
Unidas sobre Mujeres, Paz y
Seguridad (MIRMPAZ)
Embajadora (Ministerio de
Relaciones Exteriores)
Representante (Ministerio de
Relaciones Exteriores)
Secretaría de Comunicación
Social (Presidencia de la
República)
Representante (Organismo
Judicial)
Representante (Impunity Watch)
Consultora
Entrevista de Grupo
6
Defensoría de la Mujer Indígena
(DEMI)
Defensora
Encargadas del Abordaje de la
VCM
Entrevista de Grupo
3
Comisión de la Mujer del
Congreso de la República de
Guatemala
Presidenta
1
Comisión de la Mujer del
Congreso de la República de
Guatemala
Expresidenta
1
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45
Organización
Cargo
Método de Consulta
Número de
personas
entrevistadas
Ministerio Público
Secretaria de asuntos
internacionales y cooperación
Subsecretaria de asuntos
internacionales y cooperación
Jefa del departamento de
cooperación
Jefa Oficina de Atención a las
Víctimas
Encargada de las Red de
Derivación
Entrevista de Grupo
5
Secretaría Presidencial de la
Mujer (SEPREM)
Secretaria
Equipo de trabajo
Entrevista de Grupo
¿cuántos?
Comisión Presidencial Contra el
Femicidio
Comisionada Presidencial para el
Femicidio
Asistente de la Comisionada
Entrevista de Grupo
2
Grupo de exfuncionarias
(COPREDEH, SEPREM
SEGEPLAN, MINGOV)
ExPresidenta (COPREDEH)
ExSecretaria Presidencial de la
Mujer (SEPREM)
ExSubsecretaria de Políticas
Públicas (SEGEPLAN)
ExSecretaria (SEGEPLAN)
ExAsosora (MINGOB)
Entrevista de Grupo
5
Entrevista de Grupo
19
Entrevista de Grupo
5
Gobierno Local
Autoridades Ancestrales de
Totonicapán (48 cantones)
Presidente y miembros(as) de la
Junta Directiva 2013
Expresidenta de la Junta
Directiva 2012
Expresidente de la Junta
Directiva 2011
Mujeres beneficiarias directas
Gobierno Municipal de Mixco
Municipalidad de Guatemala
Vice-Regente Municipal
Coordinadora de cooperación
Internacional de la Municipalidad
de Guatemala
Representante de la Oficina
Municipal de la Mujer
Coordinador de programas
sociales
Representante de la dirección
social de la Municipalidad
¿cuántos?
Sociedad Civil
Organizaciones de Mujeres
Indígenas
MOLOJ
CONAVIGUA
IXMUKANE
MAJAWIL
Entrevista de Grupo
6
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46
Organización
Cargo
Método de Consulta
Número de
personas
entrevistadas
Alianza para la Acción
Directora (Fundación
Sobrevivientes)
Integrante de la Junta Directiva
(Fundación Sobrevivientes)
Coordinadoras Generales
(Convergencia Cívico-Política de
Mujeres)
Representante (CICAM)
Consultora
Entrevista de Grupo
7
Socias de la Campaña y otras
integrantes del Movimiento de
Mujeres
AMUGEN
Naik Madera
GGM
Asociación Alas de Mariposas
Tierra Viva
IUMUSAC
FLACSO
CONCYT/SENACYT
REDNOVI
Asociación Nuevos Horizontes
ATRAHDOM
Colectivo Artesana
Foro de la Mujer
NDI
FIMI
SINERGIA NOJ
CLADEM
CONASIDA
ASOGEN-CAIMU
USAC
Conversatorio
26
Population Council
Directora de Programa
1
Unión Nacional de Mujeres
Guatemaltecas (UNAMG)
Directora
1
Fundación Guatemala
Asesora Legal y Técnica de
Proyectos
Asistente Administrativa y
Técnica de Proyectos
Entrevista de Grupo
2
Sistema de la Naciones Unidas
Sistema de las Naciones Unidas
Integrantes del GIGAM y el GTI
Seguridad y Justicia
Conversatorio
20
Director de País (PNUD)
Representante (UNFPA)
Representante Adjunto (UNICEF)
Coordinadora (VNU)
Coordinador Oficina Proyectos
(OIT)
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Organización
Cargo
Método de Consulta
Número de
personas
entrevistadas
UNFPA
ONUSIDA
OPS/OMS
PMA
OIM
UNESCO
Banco Mundial
FIDA
OIT
OACNUDH
PNUD
Representante Adjunto
OACNUDH
UNFPA
Representante
Representante adjunta
Oficial de género
Especialista en Juventud,
Educación y Masculinidades
Entrevista de Grupo
¿cuántos?
Comisión Internacional contra la
Impunidad en Guatemala
(CICIG)
Comisionado
1
Oficina Coordinador Residente
Coordinador Residente
Asesora Oficina Coordinador
Residente
Entrevista de Grupo
2
Mujeres y Hombres de Comunidades
Sacanillá
Grupo de mujeres participantes
en actividades de Territorios
Libres de Violencia
Dos hombres participantes
Entrevista de Grupo
20
Visitas
Casa de la Mujer, Zona 18
Centro de Apoyo Integral para Mujeres Sobrevivientes de Violencia “Ak ‘ Yu’ Am”, Coban
Otros (Academia, etc.)
Universidad de San Carlos
Directora del Instituto de la Mujer
Encargada de Proyecto
Entrevista Grupo
3
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48
Anexo IV:
Grupo Nacional de Referencia
Walda Barrios, Facultad Latinoamericana de Ciencias Sociales FLACSO; Asociación de Mujeres para
Estudios Feministas AMIRF; Unión de Mujeres Guatemaltecas UNAMG
Ana Grace Cabrera, ONU Mujeres Guatemala
Norma Cruz, Fundación Sobrevivientes
Otilia Lux, Fondo Internacional de Mujeres Indígenas FIMI; Comisión de la Mujer del Congreso de la
República de Guatemala; Comisión de Esclarecimiento Histórico
Vilma Masaya, Congreso de la República de Guatemala
Hilda Morales, Procuraduría de Derechos Humanos
Ana Luisa Rivas, UNFPA
Catalina Soberanis, Oficina del Coordinador Residente
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49
Anexo V:
Ejemplo de un protocolo de
entrevista (para representantes de
organizaciones de la sociedad civil)
Introducción: Universalia ha sido contratada para realizar una evaluación del trabajo de ONU Mujeres en
Eliminar la Violencia Contra las Mujeres y las Niñas (EVAWG por sus siglas en inglés). Esta evaluación
temática incluye estudios sobre el trabajo en EVAWG en siete países. Esta entrevista contribuirá al estudio
de caso de su país.
Gracias por acceder a esta entrevista. Este documento tiene como propósito ser una guía para nuestra
conversación, que espero tendrá una duración de aproximadamente una hora. Todas las entrevistas son
confidenciales; la información que usted proporcione solo será reportada en conjunto, resumiendo todas las
entrevistas a informantes clave sin identificación de las fuentes.
1. Su rol
1.1 ¿Puede describir brevemente su rol en el trabajo en EVAWG?
1.2 ¿Cuál es la naturaleza de la relación entre su organización y ONU Mujeres respecto al trabajo en
EVAWG?
2. Relevancia
2.1 ¿En qué medida el trabajo de UNIFEM/ONU Mujeres en EVAWG se ha alineado con las necesidades y
prioridades del Gobierno y de la población de Guatemala?
3. Contribución a los resultados
3.1 ¿Qué tipos de apoyo ha recibido usted de ONU Mujeres para el desarrollo de su trabajo en EVAWG?
3.2 ¿Además de ONU Mujeres, trabaja usted con otra agencia del sistema de las Naciones Unidas? Si es
así, ¿con cuál y en qué intervenciones?
3.3 En su opinión, ¿cuáles han sido los resultados específicos del trabajo apoyado por ONU Mujeres en
EVAWG en los últimos cuatro años en Guatemala?
3.4 ¿Cómo evaluaría usted el progreso general hacia la eliminación de la violencia contra la mujer del 2008
al presente y por qué?
3.5 ¿En qué medida y cómo ha contribuido el trabajo de ONU Mujeres (UNIFEM) a lograr estos cambios?
3.6 En su opinión, ¿en qué medida y cómo los factores o desarrollos contextuales han apoyado o dificultado
el trabajo de ONU Mujeres y de otros actores para alcanzar resultados en EVAWG?
3.7 Basado en su experiencia, ¿cuáles son las principales lecciones aprendidas en cuanto a "qué funciona y
qué no funciona” en la programación sobre EVAWG?
3.8 ¿Cómo se ha considerado o tratado el tema de la sostenibilidad en las intervenciones en Guatemala?
4. Fortalezas y debilidades
4.1 Pensando en los últimos 4 años, ¿puede usted identificar algunas fortalezas organizacionales de ONU
Mujeres (UNIFEM) que deberían capitalizarse en el futuro?
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4.2 En ese mismo período de tiempo, ¿existieron debilidades organizacionales que han afectado
negativamente el trabajo de ONU Mujeres/UNIFEM en EVAWG en Guatemala y que requieren atención
en el futuro?
5. Posicionamiento estratégico
5.1 ¿Cuáles son las oportunidades y los obstáculos más importantes para el trabajo exitoso en EVAWG en
Guatemala?
5.2 En su opinión, ¿qué significaría para ONU Mujeres estar "estratégicamente posicionada" para cumplir
con su mandato en relación con VAWG en Guatemala?
5.3 ¿Tiene usted alguna sugerencia relacionada con cómo ONU Mujeres podría mejorar aún más su
posicionamiento estratégico en relación al trabajo en VAWG en su país?
¡Gracias por su contribución con esta evaluación!
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51
Anexo VI:
Descripción de los Proyectos
Proyectos de UNIFEM/ONU Mujeres215
1. Ciudades Seguras para las Mujeres
Este proyecto que se está implementando en ambos Guatemala y El Salvador por una duración de cinco
años (2008-2013) es financiado por Zonta International y por la Agencia Española de Cooperación
Internacional para el Desarrollo (AECID), con un presupuesto total de US $372,350 para Guatemala. El
objetivo general del proyecto es fortalecer la ciudadanía activa de las mujeres en el ejercicio de sus
derechos, a fin de reducir la violencia pública y privada que se ejerce contra ellas en las ciudades. Según el
informe anual para 2011 al donante Zonta International, los objetivos específicos del proyecto son:

Profundizar el conocimiento sobre el vínculo entre la violencia urbana y la VCM con el objetivo de
aportar al debata público sobre la seguridad urbana y las mujeres;

Capacitar a funcionarios, redes de mujeres y ciudadanos acerca de la importancia de adoptar
políticas que atienden el problema de la VCM en las ciudades;

Fortalecer la cooperación entre los gobiernos locales, las organizaciones de mujeres y la sociedad
civil en el desarrollo de planes urbanos que responden a la problemática de la violencia hacia las
mujeres en las ciudades;

Fortalecer el papel de las redes y organizaciones de mujeres para que influencien los gobiernos
locales en la formulación de políticas públicas que atienden a la seguridad de las mujeres en las
ciudades;

Divulgar las lecciones aprendidas sobre la VCM en zonas urbanas.
Los tipos de actividades que se llevaron a cabo para lograr dichos resultados incluyen la realización de
campañas de sensibilización sobre la VCM, formaciones con instancias gubernamentales sobre los
derechos de las mujeres, talleres con mujeres y jóvenes sobre la VCM, implementación de iniciativas para
la eliminación de la VCM en lugares públicos, diagnósticos para la identificación de lugares inseguros en
las zonas urbanas y presentación de propuestas de mapeo para una ciudad segura.
2. Trabajando contra la Discriminación Étnica/Racial y de Género: Programa para el Ejercicio
Efectivo de los Derechos de las Mujeres Indígenas Latinoamericanas (Programa Mujeres Indígenas)
El Programa Mujeres Indígenas se implementó en seis países latinoamericanos (Bolivia, Ecuador
Guatemala, Honduras, Panamá y Perú) a partir del 2008 hasta finales del 2012. El monto total para el
proyecto, que fue financiado por la AECID, BMZ y ACCD, fue de aproximadamente US $ 3.265,792, sin
embargo, información sobre el presupuesto por país no está disponible. El objetivo general del programa
era promover los derechos humanos de las mujeres indígenas y disminuir la discriminación étnica y de
género que enfrentan. Los resultados anticipados del programa eran:

Las mujeres indígenas tienen mayores recursos, capacidades y voz para asegurar que sus
prioridades sean incluidas en las políticas, los programas y los presupuestos pertinentes;

Los sistemas ancestrales promueven los derechos de las mujeres indígenas, en particular el derecho
a una vida libre de violencia.
215
Información sobre los objetivos y resultados anticipados de los siguientes proyectos está basada en los documentos de
UNIFEM/ONU Mujeres. La información puede haber sido resumida o presentada tal como está escrita en los documentos de
referencia.
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Los tipos de actividades desarrolladas por UNIFEM/ONU Mujeres incluyen la realización de
capacitaciones con mujeres indígenas sobre sus derechos humanos y actividades para el fortalecimiento de
las capacidades de dichas mujeres para ser líderes, el establecimiento de espacios de diálogo para
organizaciones de mujeres indígenas, el apoyo a propuestas de mujeres indígenas presentadas a varios
órganos internacionales tales como el Comité de CEDAW, Rio +20 y otros, y el soporte a las autoridades
ancestrales para que desarrollen e implementen estrategias para la eliminación de la VCM.
3. Alianza para la Acción: Previniendo los Femicidios y Otras Formas de Violencia contra las
Mujeres
Alianza para la Acción es una iniciativa conjunta implementada por UNIFEM/ONU Mujeres, UNFPA y
tres organizaciones de la sociedad civil: Centro de Investigación, Capacitación y Apoyo a la Mujer
(CICAM), Convergencia Cívico-Política y Fundación Sobreviviente. La iniciativa, que empezó en el 2007,
no cuenta con fecha de finalización. El monto total invertido hasta la fecha es de US $768,200, del cual la
mayor parte proviene de la Fundación Ford. El objetivo principal de la iniciativa es contribuir a la
erradicación de la impunidad relacionada con los femicidios y otras formas de violencia contra las mujeres,
con énfasis en la violencia sexual, a través de acciones estratégicas de incidencia y coordinación con las
instituciones responsables de justicia, seguridad y salud sexual y reproductiva, para la efectiva aplicación
del marco jurídico y una respuesta pronta y pertinente. La iniciativa cuenta con cinco objetivos específicos:

Contribuir a la prevención de los asesinatos de mujeres;

Fortalecer la colaboración entre la sociedad civil y las instituciones del Estado;

Vigilar y aportar a la efectiva implementación del marco jurídico y político;

Contribuir al acceso de las mujeres a la justicia, la seguridad y la salud para el ejercicio de su
derecho a una vida libre de violencia;

Facilitar procesos de empoderamiento y autonomía para que las mujeres incrementen sus
capacidades de exigir y demandar seguridad, justicia, servicios de salud sexual y salud reproductiva
y la transformación de un proyecto de vida centrado en ellas.
En relación con la prevención de asesinatos de mujeres, UNIFEM/ONU Mujeres ha brindado
capacitaciones sobre la prevención y respuesta a la VCM a responsables locales, así como apoyo
psicológico/legal para las familias de las víctimas. También ha establecido foros y otros espacios de
dialogo para facilitar la colaboración entre la sociedad civil y las instituciones gubernamentales en temas
relacionados con la VCM. En el marco de esta iniciativa, UNIFEM/ONU Mujeres también ha estado
trabajando en estrecha colaboración con las instituciones de seguridad y de justica, brindándoles
capacitaciones y apoyo técnico para mejorar la implementación de las legislaciones en términos de la VCM
y facilitar el acceso a los servicios para las víctimas.
4. F-ODM Fortaleciendo la Institucionalidad de las Mujeres en Guatemala
El proyecto conjunto de las Naciones Unidas para el fortalecimiento de las instituciones de mujeres en
Guatemala fue implementado de forma conjunta por UNIFEM, UNFPA, PNUD, FAO, PMA, OPS y UNV
por una duración de tres años (2008-2011). Los principales socios a nivel nacional eran la SEPREM y la
DEMI, sin embargo, SEGEPLAN y otros Ministerios de línea tales el de Economía, Finanzas Públicas,
Salud Pública y Asistencia Social, Agricultura, y el Instituto Nacional de Estadísticas también estuvieron
involucrados en el proyecto. Éste contaba con cinco ejes temáticos principales: el fortalecimiento
institucional, el abordaje de la violencia, discriminación y racismo contra las mujeres, el empoderamiento
económico, la participación política y el monitoreo y evaluación. El presupuesto total comprometido para
el proyecto era de US $7.200,000, del cual UNIFEM recibió US $ 2.638,883 para implementar su parte del
proyecto. De este monto, UNIFEM desembolsó US $ 2.998,055 para actividades en el eje del abordaje de
la violencia, discriminación y racismo contra las mujeres. Los dos objetivos específicos del proyecto eran:
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53

El fortalecimiento de la Secretaría Presidencial de la Mujer, de la Defensoría de la Mujer Indígena
y de los mecanismos de los gobiernos locales para el avance de las mujeres facilita la integración
de la Política Nacional de Promoción y Desarrollo de las Mujeres Guatemaltecas y de su Plan de
Ejecución 2008-2012 en la planificación y presupuestos de las instituciones estatales a nivel
nacional y local.

Las principales instituciones del gobierno central y los gobiernos locales que son responsables de la
implementación de los ejes globales de la Política Nacional de Promoción y Desarrollo de las
Mujeres Guatemaltecas y de su Plan de Ejecución 2008-2012 para la erradicación de la violencia,
la discriminación y el racismo contra las mujeres, el desarrollo económico y productivo con
equidad, y la equidad en la participación sociopolítica, diseñan e implementan estrategias para
avanzar en su cumplimiento.
El resultado anticipado principal relacionado con el eje sobre el abordaje de la violencia, discriminación y
racismo contra las mujeres era:

Las mujeres, niñas y adolescentes, especialmente mujeres indígenas y rurales, tienen mayor acceso
a servicios integrales, multisectoriales, y con pertinencia cultural y étnico-lingüística para prevenir
y responder a la violencia, discriminación y racismo en su contra.
Los tipos de actividades llevadas a cabo por UNIFEM/ONU Mujeres incluyen, entre otras, capacitaciones
para el fortalecimiento de las instituciones gubernamentales de mujeres y procesos de formación en
derechos humanos; apoyo al proceso de coordinación interinstitucional en el tema de la VCM; actividades
de sensibilización al público; y asesoría legal para el fortalecimiento del marco normativo nacional en
materia de la VCM.
5. Proyecto Mujeres, Paz y Seguridad en América Latina: Componente Guatemala
El Proyecto Mujeres, Paz y Seguridad en América Latina, el cual se implementó en ambos Guatemala y
Colombia durante el periodo 2005-2012, recibió financiamiento de la AECID. El presupuesto para
Guatemala durante este periodo fue de US $358,939.
A través de este proyecto, UNIFEM/ONU Mujeres trabajó en estrecha colaboración con varias
instituciones estatales y organizaciones no-gubernamentales de mujeres guatemaltecas para fortalecer la
gobernabilidad democrática y los procesos de construcción de la paz con enfoque en justicia de género. Los
resultados anticipados del proyecto eran:

Aumentar la protección de los derechos de las mujeres afectadas por el conflicto y la violencia
social a través del fortalecimiento institucional y de la promoción de políticas públicas para la
erradicación de la VCM;

Fortalecer y promover la participación e influencia de las mujeres en los procesos de construcción
de la paz en los niveles local, nacional e internacional a través del empoderamiento de las
organizaciones y redes de mujeres.
En el marco de este proyecto, UNIFEM/ONU Mujeres apoyó, entre otras cosas, el proceso de formulación
e implementación de estrategias, facilitó las alianzas entre los relevantes ministerios e organizaciones de
mujeres para el proceso de diseño y aprobación de la Ley contra el Femicidio y otras formas de Violencia
contra las Mujeres; le brindó capacitaciones a la Policía Nacional Civil y a jueces y juezas para alentar la
aplicación de las leyes relativas a los derechos de la mujeres; y realizó campañas de sensibilización sobre la
VCM y los derechos de las mujeres.
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Proyectos del Fondo Fiduciario de la ONU
6. "Safescaping" Guatemala's Indigenous Communities: Primary prevention of gender violence by
forming and mentoring young Mayan social change agents
El Population Council, una organización no-gubernamental internacional, recibió financiamiento del Fondo
Fiduciario de la ONU para implementar este proyecto, cuya duración fue de tres años (2010-2012). El
monto total de los fondos recibidos durante este periodo alcanzó los US$ 851,758. El proyecto se
implementó en conjunto con la Defensoría de la Mujer Indígena (DEMI) y el Centro de Investigación,
Capacitación y Apoyo a la Mujer (CICAM), en colaboración con el Grupo de trabajo técnico inter-agencial
de la ONU para los adolescentes vulnerables en Guatemala (el cual incluye UNFPA, UNICEF, UNIFEM,
UNESCO, OPS y ONUSIDA). Su objetivo era prevenir y reducir la violencia basada en género entre las
niñas y adolescentes indígenas que viven en las comunidades rurales de Guatemala. Los objetivos
específicos de la iniciativa eran los siguientes:

Nivel institucional: Fortalecer la capacidad local institucional de distintos sectores para: a) trabajar
con y para niñas y jóvenes indígenas; y b) integrar un mayor enfoque en la prevención primaria
contra la VBG en comunidades indígenas rurales.

Nivel comunitario: Llevar a efecto el PVSE en las comunidades rurales buscando crear un entorno
más equitativo en relación con el género, y más a favor de las adolescentes de las comunidades.

Nivel de relaciones: Fomentar en el seno familiar y en los grupos de jóvenes relaciones de género
más respetuosas y equitativas y proclives a las adolescentes.

Nivel individual: Desarrollar valores y capacidades personales (incluyendo conocimientos,
destrezas, recursos y oportunidades) para apoyar y capacitar a adolescentes vulnerables en el
desarrollo de normas de género positivas y para prevenir la VBG.
El proyecto se implementó en 20 comunidades rurales indígenas en los departamentos de Alta Verapaz,
Chimaltenango, Sololá y Quetzaltenango. Las actividades que se llevaron a cabo en el marco de este
proyecto incluyeron, entre otras, la realización de talleres de capacitaciones para jóvenes mayas sobre la
VCM, la salud sexual y reproductiva, y la salud materna; el establecimiento de espacios para niñas y
adolescentes en cada comunidad; soporte a los líderes comunitarios para el establecimiento de servicios de
atención a las víctimas de VCM; y la realización de campañas de sensibilización sobre el tema de la VCM
junio 2013
55
Anexo VII: Mapeo de Actores trabanjando
en el tema de la VCM
Socias implementadoras
Instituci
ones
Estatales
Proyecto
Fortalecien
do la
Instituciona
lidad de las
Mujeres de
Guatemala
- Fondo
ODM
Secretaría
Presidencial
de la Mujer,
SEPREM
Defensoría
de la Mujer
Indígena
DEMI
Organismo
Legislativo
especialme
nte la
Comisión de
la Mujer del
Congreso de
la República
Proyecto Alianza
para la Acción en la
Prevención de los
Asesinatos contra
Mujeres en
Guatemala
Proyecto GTM
Mujeres, Paz y
Seguridad
Programa
Mujeres
Indígenas
Campaña SG en
Guatemala
Proyecto Ciudades
Seguras
La Cuerda,
CERIGUA
Municipalidad de
Guatemala/Oficina
Municipal de la
Mujer
Fundación
Guatemala
Gobiern
os
Locales
CICAM
Sociedad
Civil
Alianza para la
Acción en la
Prevención de los
Asesinatos contra
Mujeres – CICAM,
Convergencia Cívico
Política de Mujeres y
Fundación
Sobrevivientes
Convergencia
Cívico Política
de Mujeres
UNAMG
REMUPAZ
Asociación
Política de
Mujeres
Mayas de
MOLOJ,
Coordinad
ora
Nacional
de
Mujeres
Mayas,
Garífunas
y Xincas
(CONMAG
AXI),
CONAVIG
UA,
IXMUKAN
E, KAQLA,
MAJAWILL
QUIEJ
junio 2013
56
Proyecto
Fortalecien
do la
Instituciona
lidad de las
Mujeres de
Guatemala
- Fondo
ODM
Proyecto Alianza
Prevención de los
Asesinatos contra
Mujeres en
Guatemala
Proyecto GTM
Mujeres, Paz y
Seguridad
Programa
Mujeres
Indígenas
Campaña SG en
Guatemala
Socias Estratégicas/beneficiarias de implementación directa
Academi
a
Instituci
ones
Estatales
Secretaría
de
Planificació
ny
Programaci
ón de la
Presidencia,
SEGEPLAN
Comisión
Presidencial
contra la
Discriminaci
ón y el
Racismo
contra los
Pueblos
Indígenas
en
Guatemala,
CODISRA
Coordinado
ra Nacional
para la
Prevención
de la
Violencia
Intrafamiliar
y contra las
Mujeres
CONAPREVI
Comisión
Presidencial
Coordinado
ra de la
Política del
Ejecutivo en
materia de
Derechos
Humanos COPREDEH
Secretaría
Presidencial de la
Mujer, SEPREM
Coordinadora
Nacional para la
Prevención de la
Violencia
Intrafamiliar y
contra las Mujeres
CONAPREVIOrganis
mo
JudicialOrganismo
Legislativo
especialmente la
Comisión de la
Mujer del Congreso
de la RepúblicaCorte
de
ConstitucionalidadM
inisterio de
GobernaciónMiniste
rio PúblicoMinisterio
de Salud Pública
Policía Nacional Civil
Secretaría
Presidencial de
la Mujer,
SEPREMDefens
oría de la
Mujer
Indígena, DEMI
Comisión
Presidencial
Coordinadora
de la Política
del Ejecutivo
en materia de
Derechos
Humanos COPREDEHCoordinadora
Nacional para
la Prevención
de la Violencia
Intrafamiliar y
contra las
Mujeres
CONAPREVI
Comisionada
Presidencial
para el
Femicidio
Defensoría
de la
Mujer
Indígena,
DEMI
Comisión
contra el
Femicidio
COPAF
Comisión
Presidenci
al contra
la
Discrimina
ción y el
Racismo
contra los
Pueblos
Indígenas
en
Guatemal
a CODISRA
Secretaría
Presidencial de
la Mujer,
SEPREMDefenso
ría de la Mujer
Indígena,
DEMIComisión
Presidencial
contra la
Discriminación y
el Racismo
contra los
Pueblos
Indígenas en
Guatemala,
CODISRACoordi
nadora Nacional
para la
Prevención de la
Violencia
Intrafamiliar y
contra las
Mujeres
CONAPREVIOrga
nismo
JudicialOrganis
mo Legislativo
especialmente
la Comisión de
la Mujer del
Congreso de la
RepúblicaMinist
erio de
GobernaciónMi
nisterio
PúblicoMinisteri
o de Salud
Pública
Policía Nacional
Civil
Parlamento
Centroamerican
o
Proyecto Ciudades
Seguras
Universidad de San
Carlos de
Guatemala,
especialmente
IUMUSAC
Organismo
Legislativo
especialmente la
Comisión de la
Mujer del Congreso
de la República
junio 2013
57
Proyecto
Fortalecien
do la
Instituciona
lidad de las
Mujeres de
Guatemala
- Fondo
ODM
Comité
Nacional
para la
Alfabetizaci
ón,
CONALFA
(Institución
Autónoma)
Organismo
Judicial
Ministerio
Público
Ministerio
de
Educación
Ministerio
de Salud
Colegio de
Abogados y
Notarios
Gobiern
os
Locales
Autoridades
Ancestrales
de los 48
cantones
Oficinas
Municipales
de la Mujer,
OMMs
Consejos de
Desarrollo
Departame
ntal,
CODEDES
especialme
nte, la
Comisión de
la Mujer del
Consejo de
Desarrollo y
la Comisión
de
Seguridad
Ciudadana
Consejos
Proyecto Alianza
Prevención de los
Asesinatos contra
Mujeres en
Guatemala
Proyecto GTM
Mujeres, Paz y
Seguridad
Programa
Mujeres
Indígenas
Campaña SG en
Guatemala
Proyecto Ciudades
Seguras
Municipalidad
de Nahualá
Municipalidad
de Sacanillá
Municipalidad de
Livingston
COPAF
Comisión para
la reforma
policialOrganis
mo
JudicialOrganis
mo Legislativo
especialmente
la Comisión de
la Mujer del
Congreso de la
República
Ministerio de
Gobernación
Ministerio
Público
Ministerio de
Relaciones
ExterioresParla
mento
Centroamerica
no -PARLACENPolicía Nacional
Civil Colegio de
Psicología
Comités
Comunitarios
Locales
Autoridad
es
Ancestrale
s de los 48
cantones
junio 2013
58
Proyecto
Fortalecien
do la
Instituciona
lidad de las
Mujeres de
Guatemala
- Fondo
ODM
Municipales
de
Desarrollo,
COMUDES
Red de
Mujeres de
Chiquimula,
REDMUCH
Mamá
Maquín
Asociación
Guatemalte
ca de
Mujeres
Defensoras
de los
Derechos
Humanos
de
Guatemala
Sociedad
Civil
Proyecto Alianza
Prevención de los
Asesinatos contra
Mujeres en
Guatemala
Proyecto GTM
Mujeres, Paz y
Seguridad
Programa
Mujeres
Indígenas
ECAP
Grupo
Guatemalteco
de Mujeres
IEPADES
Impunity
Watch,
MAMA
MAQUIM,
Fundación
Sobrevivientes,
CICAM
CONAVIGUA
Asociación
Política de
Mujeres
Mayjas MOLOJ
Actoras de
Cambio
RAMMCA
Colectivo
Artesanas
Foro
Internacio
nal de
Mujeres
Indígena,
Alianza de
Mujeres
Indígenas
de
Centroam
érica y
México,
AMUTED
Campaña SG en
Guatemala
Proyecto Ciudades
Seguras
GGM, REDNOVI,
Tierra Viva,
Radio
Internacional
Feminista
Colectivo
Artesana,
Asociación Alas
de Mariposas,
ATHRADOM,
Foro de la
Mujer,
REMUPAZ,
ECAP,
CODEFEM,
Asociación
Política de
Mujeres Mayas
MOLOJ,
Coordinadora
Nacional de
Mujeres Mayas,
Garífunas y
Xincas
(CONMAGAXI),
CONAVIGUA,
IXMUKANE,
KAQLA,
MAJAWILL
QUIEJ,
Convergencia
Cívico Política de
Mujeres
Actoras de
Cambio
UNAMG,
Fundación
Sobrevivientes,
CICAM, Mujeres
Transformando
el Mundo,
Agenda de las
Mujeres, INCIDE
Joven, SINERGIA
NOJ, Agenda por
Organizaciones de
la Red Mujer y
Hábitat de América
Latina
junio 2013
59
Proyecto
Fortalecien
do la
Instituciona
lidad de las
Mujeres de
Guatemala
- Fondo
ODM
Proyecto Alianza
Prevención de los
Asesinatos contra
Mujeres en
Guatemala
Proyecto GTM
Mujeres, Paz y
Seguridad
Programa
Mujeres
Indígenas
Campaña SG en
Guatemala
Proyecto Ciudades
Seguras
la Diversidad,
Naik Madera
Academi
a
Universidad
de San
Carlos de
Guatemala,
especialme
nte el
Instituto
Universitari
o de la
Mujer,
IUMUSAC
Universidad de
San Carlos de
Guatemala,
especialmente
el Instituto
Universitario
de la Mujer,
IUMUSAC
Universidad Rafael
Landívar
junio 2013
60
C o n t r i b u t i o n o f U N - Wo m e n t o P r e v e n t
Vi o l e n c e a g a i n s t Wo m e n a n d E x p a n d
Access to Services
Country Case Study: India
junio 2013
61
Acronyms
AIDS
Acquired Immune Deficiency Syndrome
APAS
Asia Pacific and Arab States
CEDAW
Convention on the Elimination of All Forms of Discrimination Against Women
CSO
Civil Society Organisation
DESA
United Nations Department of Economic and Social Affairs
ESCAP
United Nations Economic and Social Commission for Asia and the Pacific
EVAW
FIRs
First Information Reports
GBSS
Gender Biased Sex Selection
GBV
GGGI
Global Gender Gap Index
GII
Gender Inequality Index
HDI
Human Development Index
HIV
Human Immunodeficiency Virus
ILO
International Labour Organization
IMF
International Monetary Fund
M&E
NCW
National Commission for Women, India
NGO
OECD
Organisation for Economic Cooperation and Development
OHCHR
Office of the United Nations High Commissioner for Human Rights
P4P
Partners for Prevention
PWDVA
Protection of Women from Domestic Violence Act
SAARC
South Asian Association for Regional Cooperation
SASRO
South Asia Subregional Office
SIGI
The Social Institution and Gender Index
UN-Habitat
United Nations Human Settlements Programme
UN-Women
UNAIDS
Joint United Nations Programme on HIV/AIDS
UNCT
UNDAF
UNDP
August 2013
i
Acronyms
UNDP-TAHA
UNDP Trafficking and HIV/AIDS Project
UNESCO
United Nations Educational, Scientific, and Cultural Organization
UNFPA
UNHCR
United Nations High Commissioner for Refugees
UNIC
United Nations Information Centre
UNICEF
UNIDO
United Nations Industrial Development Organization
UNIFEM
United Nations Fund for Women,
UNODC
United Nations Office On Drugs and Crime
UNOPS
United Nations Office for Project Services
VAW
Violence against Women
WFP
World Food Programme
WHO
World Health Organization
August 2013
ii
Contents
1.
2.
3.
1.1
1.2
1.3
1.4
2.1
2.2
2.3
2.4
3.1
3.2
3.3
3.4
4.
Introduction 1
Background 1
Methodology 1
Limitations 2
Report structure
Context
2
3
Regional
3
National - India
3
Gender equality and VAW in India 4
9
Profile of UNIFEM-supported VAW programming in India (2008-2011) 10
Overview
10
VAW programming in India 10
11
Findings
4.1
4.2
4.2.1
4.2.2
4.2.3
4.2.4
4.2.5
4.2.6
4.3
4.4
13
Overview
13
13
General
13
14
21
23
24
5.
Recommendations 28
6.
August 2013
iii
Exhibits
Exhibit 6.1 Implications for the overall Evaluation
13
23
30
Appendices
33
46
51
Appendix VIII Notes from the Theory of Change Session
43
52
August 2013
iv
1.
1.1
Introduction
Background
This country case study summarizes key observations and findings on the work of United Nations Entity
for Gender Equality and Women’s Empowerment (UN-Women) and its predecessor, the United Nations
Fund for Women (UNIFEM), to end violence against women and girls in India, and its contributions to
results. The draft case study report was revised on the basis of feedback from UN-Women and the national
reference group established in India for the purpose of the evaluation.216
The country case study constitutes one element of the broader Thematic Evaluation of the Contribution of
UN-Women to Prevent Violence Against Women and Expand Access to Services, the purposes of which
were to: i) capture key results and lessons learned from the contributions of UN-Women’s four predecessor
entities217 between 2008 and 2011 which UN-Women has taken forward to help countries prevent violence
against women and girls and expand access to related services, and ii) analyze how well UN-Women is
strategically positioned to implement its mandate of normative, operational and coordination work in the
area of violence against women (VAW).218
The India country case study is one of seven country case studies conducted for the overall thematic
evaluation.
1.2
Methodology
The key data sources for the country case study were documents (as listed in Appendix V below), in-person
interviews during the country visit from 14 – 18 January 2013 and telephone interviews. A total of 46
stakeholders were consulted and are listed in Appendix II.219 The country visit included consultations with
UN-Women staff, staff from other United Nations entities, government officials, civil society, and a small
group of rights holders that included a support group of women who are survivors of domestic violence,
and widows who have experienced violence. International standards on conducting research with women
affected by violence were followed when consulting these women.220 Informed consent was received and
measures were taken to ensure interactions were respectful, ethical and based on a rights-based approach.
Data collection was structured according to the three strategic evaluation questions and related subquestions outlined in the evaluation Inception Report and included in Appendix III.
The evaluation team, in consultation with the national reference group, reconstructed a preliminary theory
of change on its work on ending violence against women (EVAW) as a contribution to a more detailed
corporate theory of change. This results logic was used in the design of interview protocols and provided
the basis of efforts to understand the rationale for the types of initiatives being implemented in each country
and the results they sought to achieve. For India, this was complemented by discussions with UN-Women
staff during the country visit to share and review this draft results logic, and elicit feedback regarding its
relevance in view of UN-Women’s work in India.
216
National reference group members are listed in Appendix 1.
218
Further information on the objectives and methodology of the evaluation are available in the evaluation Inception Report
(November 2012).
217
219
Thirty widows from a UN-Women supported widow’s programme were also interviewed as part of a focus group. Three
individual widows and two related project staff members were interviewed from the partner organization.
220
World Health Organization (WHO) and Program for Appropriate Technology in Health (PATH), Researching Violence against
Women: A Practical Guide for Researchers and Activists. 2005.
August 2013
1
1.3
Limitations
The following limitations should be taken into consideration when reading this country case study:

The limited institutional memory among the existing UN-Women country staff, due to staff
turnover during the transition from UNIFEM to UN-Women.

Some external respondents interviewed by the team were not involved with UN-Women or
UNIFEM during the period under review and were not familiar with the kinds of interventions
being supported at that time.

Document management systems at the country level appear to be highly fragmented which made it
a challenge for the evaluation team to gather correct and quality information for the evaluation time
period.

The lack of a coherent or centralized system within UN-Women to manage information/
documentation regarding projects also posed a challenge during in-country data collection.
1.4
Report structure
The country case study is structured in six sections. Section 2 summarizes the background contexts for UNWomen and UNIFEM work on ending violence against women and girls during the period 2008-2011.
Section 3 presents a profile of UN-Women and UNIFEM managed or supported programming during the
same period. Section 4 provides the evaluation findings on the three strategic evaluation questions and
suggestions and recommendations for UN-Women that emerged from the India case study are presented in
Section 5. Finally, Section 6 briefly summarizes observations relevant to the overall evaluation’s aim to
inform a theory of change for the work of UN-Women on ending violence against women and girls.
August 2013
2
2.
2.1
Context
Regional
For UN-Women’s programming purposes, the South Asia region consists of seven countries, namely, India,
Pakistan, Nepal, Bangladesh, Sri Lanka, Bhutan and the Maldives.221 The region was originally part of the
British Empire and is characterized by a long history of colonial ties dating back to the early 1800’s. The
departure of the British and partitioning of the region led to the creation of the independent states of India
and Pakistan in 1947, and subsequently Bangladesh in 1971. This background echoes within the politics of
the region to this day, as illustrated by recurring political tensions between India and Pakistan; internal
ethnic conflicts within Sri Lanka fuelled by armed Tamil rebels; and recurring Maoist insurgencies in
Nepal. The political situation in the region has been further exacerbated by the war on terror, which affects
Pakistan in particular and continues to have repercussions in the region as a whole. An attempt to unify
trade and cultural relations within the region was made with the creation of the South Asian Association for
Regional Cooperation (SAARC) in 1985, which includes all seven countries as members.
Most countries are also struggling in terms of economic growth. Bangladesh and Nepal are classified as
low-income countries by the World Bank. Bhutan and Pakistan are lower-middle-income countries, while
the Maldives is categorized as an upper-middle-income country222. Differences in scores obtained from the
human development index (HDI) also illustrate significant socio-economic differences in these countries223.
Based on this index, Sri Lanka ranks first in the region with a score of (0.691) whereas Nepal ranks last
(0.458). India ranks third in the HDI rankings within the region (0.547).224
In terms of global ratings, according to the United Nations Development Programme’s (UNDP) Gender
Inequality Index (GII)225, within South Asia, India had the highest level of inequality with a GII of 0.617,
followed by Nepal with a score of 0.558, Bangladesh (0.550), Bhutan (0.495), Sri Lanka (0.419), and
Pakistan (0.373).226 However, according to the World Economic Forum’s Global Gender Gap Index
(GGGI)227, Pakistan had a higher level of inequality than India, while Sri Lanka had the lowest level of
inequality. While the statistics may vary from one index to another, South Asia is still considered to be
amongst the regions with the highest levels of inequality in the world.
2.2
National - India
India is the world’s largest democracy and the second most populous country in the world with 1.24 billion
inhabitants.228 The United Nations estimates that India’s population will surpass that of China, currently the
most populous country in the world, in the coming years. The United Nations Department of Economic and
Social Affairs (DESA), Population Division projects that “by 2016, the population of India is expected to
be larger than the population of all more developed countries combined (that is, all the countries of Europe
221
During the 2008-2011 programming period UNIFEM included Afghanistan and Iran as part of the South Asia
region making a total of nine countries.
222
World Bank. Poverty and Equity Data. 2011. Available from http://povertydata.worldbank.org/poverty/home.
The HDI is a “composite index measuring average achievement in three basic dimensions of human development-a long and
healthy life, knowledge and a decent standard of living.”
224
UNDP. Human Development Report: The Human Development Index and its Components. Statistical Annexes: Table 1. 2011.
Available from http://hdr.undp.org/en/media/HDR_2011_EN_Table1.pdf.
225
The GII combines five variables (maternal mortality, adolescent fertility, educational attainment, parliamentary representation
and labour force participation) into a final score. A score of 1 indicates complete inequality; a score of 0 indicates complete
equality. Definition available from http://hdr.undp.org/en/statistics/gii/.
226
Op.cit. 9. Table 4. Available from http://hdr.undp.org/en/media/HDR_2011_EN_Table4.pdf.
227
The Global Gender Gap Report, introduced by the World Economic Forum in 2006, provides a framework for capturing the
magnitude and scope of gender-based disparities around the world. GGGI benchmarks national gender gaps of different countries
on economic, political, education- and health-based criteria. The GGGI allows comparisons to be made over time.
223
228
Op. cit. 7.
August 2013
3
[including Russia], Australia, New Zealand, Japan, Canada and the United States).”229 There are 22 official
languages in India230 with Hindi being the most widely spoken language (41 per cent of the population).
The enormity and diversity of the population and its impact on social and economic development efforts by
both the government and the United Nations cannot be underestimated.
Since 1997, the Indian economy has grown at an average rate of more than seven per cent per year. It is
now one of the top ten most powerful economies in the world, part of the Group of 20 (G20), and the
Brazil, Russia, India, China and South Africa emerging economies and was recently classified as a newly
industrialized country (NIC). Despite this, India, faces numerous challenges: poverty is widespread with an
estimated 32.7 per cent of the population (approximately 405 million people) living below the international
poverty line of $1.25 per day231 and inequality has risen with the top 10 per cent of wage earners now
making 12 times more than the lowest, compared to 6 per cent in the 1990s.232
India has been democratically governed since independence from British rule in 1947. In the early 1990s,
the Panchayati Raj institutions (village councils) were created as a three-tier system of governance under
the 73rd and 74th Amendments in the Indian Constitution233. In most states, one-third of these seats are
reserved for women while 12 states reserve 50 per cent of their seats for women.234
2.3
Gender equality and VAW in India
In India, violence against women and girls needs to be understood in the context of a deeply ingrained
culture of patriarchy, harmful customary practices and acceptance of (especially domestic) violence.235 In
terms of gender inequality, India is ranked 129 of 146 countries on the GII, with an index value of 0.617.236
The maternal mortality rate is significantly high (230 per 100,000 births), partially as a result of only 53 per
cent of all births being attended by a skilled professional. Gender-biased sex selection (GBSS) is prevalent
in India, where the declining sex ratio has been a matter of grave concern. The 2011 census reported a sex
ratio of 914 females per 1,000 males.237 These numbers however, tend to mask regional differences. During
the same decade the child sex ratio (0-6 years) dropped from 945 to 927.238 This is attributed to the decline
in the number of girls due to neglect of the girl child, high maternal mortality, female infanticide and
female foeticide.239 Women in general tend to be less educated than men, with only 27 per cent having
received a high school diploma compared to 50 per cent for men. In addition, only 33 per cent of women
229
DESA, Population Division. India becomes a billionaire. Available from
http://www.un.org/esa/population/pubsarchive/india/ind1bil.htm.
230
Government of India. The Constitution Of India, p.330. 2007. Available from http://lawmin.nic.in/coi/coiason29july08.pdf.
231
Unless otherwise stated, all currency indicated are in United States dollars. World Bank 2010 estimate. Available from
http://povertydata.worldbank.org/poverty/country/IND.
232
Organization for Economic Cooperation and Development (OECD), “Special Focus: Inequality in Emerging Economies.” 2011.
Available from http://www.oecd.org/social/socialpoliciesanddata/49170475.pdf.
233
UN-Women and International Center for Research on Women (ICRW). Violence, Economics and Power: Decoding the impact
of violence and economic insecurity on women’s political participation in India. 2012.
234
Panchayats, Bihar. “50% reservation for women in Andhra Pradesh,” Sify News, 25 November 2011. Available from
http://www.sify.com/news/50-reservation-for-women-in-ap-bihar-panchayats-news-politics-llzpcIcijii.html.
235
This statement was agreed upon by UN-Women India unit staff working on ending violence against women and girls in the
theory of change workshop during the country visit during which the unique characteristics of the problem of violence against
women and girls in India were outlined.
236
Unless otherwise indicated, all statistics in this paragraph taken from the UNDP Human Development Report Statistical
Annexes: Table 4. Op. cit. 11.
237
United Nations Population Fund (UNFPA) and Centre for Development Studies, Declining Child Sex Ratio (0-6 Years) in India:
A Review of Literature and Annotated Bibliography. 2009. Available from http://india.unfpa.org/drive/Bibloigraphy.pdf. Also,
Government of India, Annual Report on Implementation of the Pre-Conception and Pre-Natal Diagnostic Techniques (Prohibition
of Sex Selection) Act 2005. Ministry of Health and Family Welfare. 2005. Available from
http://www.pndt.gov.in/writereaddata/mainlinkfile/file22.pdf.
238
Ibid.
239
UNFPA. Guidance Note on Prenatal Sex Selection. 2010.
August 2013
4
actively participate in the labour force, compared to 81 per cent of men. As such, a large percentage of the
female population turn to the informal sector where they are faced with increased discrimination and poor
labour conditions. In India, female political participation remains low, with only 11 per cent of seats in
parliament occupied by women. However, according to the UN-Women India annual workplan (2012),
“India has the largest absolute number of women in grassroots politics, with approximately 1.2 million
elected women representatives across India – but the women’s reservation bill, guaranteeing one-third of
seats in the national legislature to women, is yet to be made into law by Parliament.”240
The women’s movement in India is one of the most established in the region and has been very effective in
instituting legislation and policy to promote women’s human rights in the country which began with the
Towards Equality Report issued in 1974, which examined the status of women in the country. This was
also the time when major social movements such as the Chipko Movement (1973), the Self-Employed
Women’s Association in 1972 and the Progressive Organization of Women in 1974, came into being.
These movements spurred the growth of the autonomous women’s organizations into what they are today
and helped the women’s movement in India achieve international recognition.241 As a result, civil society
participation and voice in public policymaking is now a norm in India, notably with the recent
establishment of the National Advisory Council (NAC).242 The women's movement in India today is a rich
and vibrant movement, which has spread to other parts of the country. There is no one single national
cohesive movement, but rather a number of fragmented campaigns which activists see as a strength as a
strong and plural force nonetheless.243
240
UN-Women. UN-Women Strategic Annual Workplan India (2012-2013), p 1. 2012.
241
Available from http://shodhganga.inflibnet.ac.in/bitstream/10603/2722/13/13_chapter%204.pdf.
242
Op. cit. 25, p.2.
243
Third World Network. The women’s movement in India: Action and reflection. Available from
http://www.twnside.org.sg/title/india1-cn.htm.
August 2013
5
Recent studies have shown that 35.1 per cent of Indian women reported at least one incident of physical
violence by an intimate partner over their lifetime, while 10 per cent reported cases of intimate partner
sexual violence.244 As for violence committed by someone other than their partner, 33.5 per cent of women
reported having experienced physical violence while 8.5 per cent reported at least one act of sexual
violence.245 In addition, rape appears to be the fastest growing crime in India with 22,172 cases reported in
2010 alone.246 Although some of this may be attributable to more women reporting incidents of violence,
stakeholders have also noted a perceived increase in violence against women and girls overtime. India’s
high score on the OECD’s Social Institution and Gender Index (SIGI) indicates a high tolerance towards
domestic violence.247 India currently ranks 56th out of 86 countries in the 2012 SIGI.248
With regards to international human rights law, India ratified the Convention on the Elimination of all
Forms of Discrimination against
Women (CEDAW) in 1993 with
National Legal Framework Addressing Violence against Women
reservations, but has yet to sign or
and Girls in India
ratify its Optional Protocol. In May
The Sexual Harassment of Women at Workplace (Prevention,
2011, India also ratified the Protocol
Prohibition and Redressal) Bill (2012)
to Prevent, Suppress and Punish
Prohibition of Child Marriage Act (2006)
Trafficking in Persons, Especially
Women and Children,
Protection of Women from Domestic Violence Act (2005)
supplementing the United Nations
Protection of Children from Sexual Offences Act (2012)
Convention against Transnational
Twelfth Five-Year Plan (2012 - 2017)
Organized Crime.
National Policy on the Empowerment of Women (2001)
As for the national legal framework,
National Plan of Action to Combat Trafficking and Commercial
the Constitution of India guarantees
Sexual Exploitation of Women and Children (1998)
equal status of women but personnel
laws vary according to religion. For
Pre-natal Diagnostic Techniques (Regulation and Prevention of
Misuse) Act, 1994, amended in 2003 as The Pre-Conception and
instance, the law can be interpreted
Pre-Natal Diagnostic Techniques (Prohibition of Sex Selection) Act
to legally allow Muslims to engage
(1994)
in polygamy which is not legally
permitted for members of other
Judicial Manual on Combating Trafficking of Women and Children
for Commercial Sexual Exploitation (2006)
religious groups.249 In recent years,
there have been significant
Immoral Traffic Prevention Act (ITPA) (1956)
advancements in the rights of
The Dowry Prohibition Act (1961)
women. For instance, the Sexual
Harassment of Women at Workplace (Prevention, Prohibition and Redressal) Bill 2012 was passed on 26
244
UN-Women. Violence against Women Prevalence Data: Surveys by Country. 2011. Available from
http://www.endvawnow.org/uploads/browser/files/vaw_prevalence_matrix_15april_2011.pdf.
245
Ibid.
Immigration and Refugee Board of Canada. India: Rates of Women Lodging Complaints with Police for Violent Crimes; Police
Response to Female Victims of Violence. 9 May 2012. Available from
http://www.unhcr.org/refworld/country,,IRBC,,IND,,50b4a23b2,0.html.
247
OECD. Social Institution and Gender Index 2011. 2011. Available from http://genderindex.org/country/india.
246
248
SIGI was first launched by the OECD Development Centre in 2009 as a innovative measure of the underlying drivers of
gender inequality for over 100 countries. Instead of measuring gender gaps in outcomes such as employment and education, SIGI
instead captures discriminatory social institutions, such as early marriage, discriminatory inheritance practices, VAW, son
preference, restricted access to public space and restricted access to land and credit. The 2012 SIGI is made up of 14 unique
variables, grouped into five sub-indices: discriminatory family code, restricted physical integrity, son bias, restricted resources and
entitlements, and restricted civil liberties
249
Other customary laws exist in India which allow for polygamy among certain tribal communities.
August 2013
6
February 2013. In addition, an act prohibiting the marriage of men under 21 and women under 18 was
passed in 2006. In 2005, the government passed a law to criminalize domestic violence, including physical,
sexual and emotional abuse, as well as all other forms of harassment related to dowry arrangements. This
law also recognizes spousal rape as a crime and allows for women to file protection orders against a family
member or partner who has committed an act of domestic violence. In addition, the Planning Commission
of India, through its Five-Year Plans promotes women as “equal partners and participants in development.”
Important institutions focusing on women’s rights have been established in the last few years. The National
Mission for Empowerment of Women (2010-2015) was launched to secure convergence amongst different
ministries of central and state governments, as well as to review gender budgeting and social laws
impacting women. The National Commission for Women, India (NCW), a statutory body mandated to
protect the constitutional and legal rights of women, monitors legal safeguards for women provided under
existing legislation. A system granting police protection to women victims of violence was also established
in 2010.250
Stakeholders have pointed out that services for survivors of VAW are limited throughout India and that,
even though a number of initiatives have been made to improve services, they are still scant especially in
rural areas. There are still significant weaknesses in the quantity and quality of existing comprehensive
services (shelter, counseling services, access to justice, emergency medical services etc.).
Current context - Landmark incident brought attention to the movement to end violence against
women and girls
VAW in India gained worldwide attention shortly before the country visit. On 16 December 2012, a
23-year old physiotherapy student was gang raped by six men on a moving bus in Delhi. She
subsequently died 13 days later from injuries sustained from an iron bar used in the hour-long
attack.251 The incident sparked mass protests in Delhi and around India, calling for increased
government action to prevent VAW and prosecuting perpetrators of sexual violence. The public
protests included young people, student unions and women’s movements from all over the country,
as well as lay people from all walks of life. Protests continued for well over a month after the incident
and social media played a fundamental role in both organizing the protests and creating pressure on
central and state governments.252 There have been a number of consultations between the United
Nations and other civil society organizations (CSOs) with key government ministries and
departments.
The Justice JS Verma Committee was constituted to review rape laws and respond to the readiness of
the government to formulate and implement strict legislation.253 The Committee released a 630-page
report on 23 January 2013 which recommended better implementation of existing laws, police
reforms, gender sensitization training of security and judiciary officials, and changes to the Indian
Penal Code.254 A draft ordinance has since been prepared in light of the recommendations, beginning
250
Government of India. National Commission for Women (1992). Available from
http://sgdatabase.unwomen.org/searchDetail.action?measureId=36823&baseHREF=country&baseHREFId=633 (accessed 7
January 2013).
251
C. Jones, Indian victim of gang rape dies in hospital in Singapore, The Guardian, 28 December 2012. Available from
http://www.guardian.co.uk/world/2012/dec/28/indian-gang-rape-dies-singapore.
252
Social media turns pivot for Delhi protests. Hindustan Times, 29 December 2012. Available from
http://www.hindustantimes.com/India-news/NewDelhi/Social-media-turns-pivot-for-Delhi-protests/Article1-982167.aspx.
253
Justice Verma committee recommendations at a glance. IBN Live: India, 24 January 2013. Available from
http://ibnlive.in.com/news/justice-verma-committee-recommendations-at-a-glance/317432-3.html.
254
Ibid.
August 2013
7
the legislative process.255 However, women’s groups have protested the ordinance, saying that it is
insufficient and a diluted version of Committee’s recommendations.256
The Supreme Court has directed all high courts to complete all rape trials within two months and to
set-up special courts. Five fast track courts for rape cases were approved by the Delhi High Court on
19 December 2012.257 On 30 January 2013, five fast track courts were also set up in Gauhati High
Court, in the state of Assam.258 A new camera conferencing system for hearing the victim statement
led to a conviction in a case in Dwarka, New Delhi. The state proposed a controversial measure to
publish the names and photographs of thousands of convicted sex offenders.259
New norms have been approved for safe public transport. Buses are to have two cameras with a twoday recording facility, GPS/GPRS monitoring, an automatic fare collection system, signboards and
audio-visual passenger information systems. Limousines and taxis are to install GPS/GPRS and be
linked to a common control centre.260 Furthermore, in accordance with a Supreme Court ban, there
will be efforts to remove tinted glass from vehicles.261
Delhi Police officials confirmed that the city was unsafe for women, with 706 cases of rape registered
in 2012, a 24 per cent increase from 2011.262 Measures have been taken by Delhi Police to make the
city safer through mapping of the city, increased patrolling, the appointment of officers, self-defense
programmes for women, increasing the number of telephone helplines from 60 to 100, instructions
to station house officers to make the reporting process smooth and confidential for women, and zero
tolerance towards sexual harassment, locally referred to as ‘eve teasing.’ There will be compulsory
registration of first information reports (FIRs) made to the police.263
The wider impacts of the incident are still unknown. Cases of rape which prior to 16 December would
have not been covered by the media, are now receiving increased publicity.264 However, there are
also fears that the incident could result in further restrictions on women. For example, women
students were advised by Delhi police to return home immediately after college, while some village
councils in Northern India have banned girls from using mobile phones and dancing at weddings.265
255
Nothing rejected from Verma report, need talks on marital rape: Govt. IBN Live: India, 4 February 2013. Available from
http://ibnlive.in.com/news/nothing-rejected-from-verma-report-need-talks-on-afspa-marital-rape-govt/370737-37-64.html.
256
Delhi gang rape row: Women groups protest anti-rape ordinance. The Economic Times, 4 February 2013. Available from
http://articles.economictimes.indiatimes.com/2013-02-04/news/36743051_1_ordinance-recommendations-women-groups-protest.
257
A. Garg. Delhi HC clears fast-track courts for rape cases. The Times of India, 20 December 2012. Available from
http://articles.timesofindia.indiatimes.com/2012-12-20/delhi/35933115_1_trial-courts-delhi-high-court-justice-murugesan
258
Gauhati HC forms 5 special courts for rape cases. The Times of India, 31st January 2013. Available from
http://timesofindia.indiatimes.com/city/guwahati/Gauhati-HC-forms-5-special-courts-for-rape-cases/articleshow/18265331.cms
259
O. Khazan. How India’s rape name-and-shame database could backfire. The Washington Post, 28 December 2012. Available
from http://www.washingtonpost.com/blogs/worldviews/wp/2012/12/28/how-indias-rape-name-and-shame-database-couldbackfire/.
260
Dipak Kumar Dash. New norms for safe public transport. The Times of India (n.d.). Available from
http://epaper.timesofindia.com/Default/Scripting/ArticleWin.asp?From=Archive&Source=Page&Skin=TOINEW&BaseHref=CAP/
2013/01/16&PageLabel=2&EntityId=Ar00202&ViewMode=HTML
261
A. Garg. Delhi HC clears fast-track courts for rape cases. The Times of India, 20 December 2012. Available from
http://articles.timesofindia.indiatimes.com/2012-12-20/delhi/35933115_1_trial-courts-delhi-high-court-justice-murugesan
262
K. Sharma. Delhi Police records show 24 per cent rise in number of rape cases in 2012. India Today, 19 January 2013.
Available from http://indiatoday.intoday.in/story/delhi-police-records-show-rise-in-number-of-rape-cases-in-2012/1/242884.html.
263
A.Viswanathan. Going from Zero FIRs to e-FIRs. The Hindu, 22 January 2013. Available from
http://www.thehindu.com/opinion/lead/going-from-zero-firs-to-efirs/article4329575.ece?homepage=true.
264
J. Burke. Indian report on gang rape receives guarded welcome from campaigners. The Guardian, 23 January 2013. Available
from http://www.guardian.co.uk/world/2013/jan/23/indian-report-gang-rape-campaigners.
265
J. Burke. Indian culture war breaks out over Delhi gang rape. The Guardian, 15 January 2013. Available from
http://www.guardian.co.uk/world/2013/jan/15/india-gang-rape-women-attitudes.
August 2013
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2.4
The United Nations in South Asia
The United Nations country team (UNCT) in India is comprised of 26 entities including UN-Women, the
United Nations Economic and Social Commission for Asia and the Pacific (ESCAP), the United Nations
Educational, Scientific and Cultural Organization (UNESCO), the United Nations Human Settlement
Programme (UN-Habitat), the United Nations Information Centre (UNIC), the United Nations Industrial
Development Organization (UNIDO), the World Health Organization (WHO), Joint United Nations
Programme on HIV/AIDS (UNAIDS), UNDP, UNFPA, the United Nations High Commissioner for
Refugees (UNHCR), the United Nations Children’s Fund (UNICEF), the United Nations Office for Project
Services (UNOPS), the World Food Programme (WFP), the International Monetary Fund (IMF), the World
Bank and others. The work of these agencies is currently being guided by the United Nations Development
Assistance Framework (UNDAF).266 Opportunities are provided by the UNDAF/Common Country
Assessment processes in the region, which are aligned to national development planning. In India, the overarching objective of the UNDAF 2008-2012, in which UNIFEM was involved, was “promoting
social, economic and political inclusion for the most disadvantaged, especially women and girls.”267
UNDAF 2013-2017 includes a gender equality outcome for the first time, and GBSS was identified as the
joint-programming priority.268 Many of the United Nations entities in India are currently working on VAW,
among them are UNICEF, the International Labour Organization (ILO), the United Nations Office on
Drugs and Crime (UNODC), UNDP-Trafficking and HIV/AIDS project (TAHA), United Nations
Volunteers (UNV), UN-Habitat and UNFPA.
UN-Women has a memorandum of understanding with UNODC on trafficking; a joint-statement with
UNFPA and UNICEF for sex-selection; and works with UN-Habitat on global Safe Cities initiatives.
On 25 June 2008, India publicly expressed its desire to put an end to violence against women and girls
when Renuka Chowdhury, Minister of State for the Ministry of Women and Child Development, became a
signatory of the Secretary-General’s UNiTE to End Violence against Women campaign.269
UN-Women and UNIFEM context
Between 2008-2011 and from 2011 onwards, the UNIFEM and UN-Women India office respectively fell
under the jurisdiction of the South Asia subregional office (SASRO) located in New Delhi which also
oversaw Afghanistan, Bangladesh, Bhutan, Iran, the Maldives, Nepal, Pakistan and Sri Lanka.270 Country
offices were established in Bangladesh and Nepal in 2012, and in Pakistan in 2011. In line with the
strategic annual workplan 2012-2013, the UN-Women office in India has become a multi-country office
covering India, Bhutan, Sri Lanka and the Maldives, as well as supporting the SAARC.271
266
United Nations in India, United Nations Resident Coordinator’s Office. Available from http://www.un.org.in/Pages/index.html
Government of India and the United Nations. India UNDAF: 2008-2012. p.1. 2007.
268
Government of India and the United Nations. India UNDAF: 2013-2017. 2011.
269
UNiTE to End Violence against Women. Available from http://endviolence.un.org/.
270
More information on the South Asia subregional office available from http://www.unwomensouthasia.org/.
271UN-Women, Executive Board. Report on the Regional Architecture Review. 24 April 2012.
267
August 2013
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3.
3.1
pr ogr a m mi ng i n I ndi a ( 20 0 8 - 2 0 11 )
Overview
This section provides an overview violence against women and girls-related work led or assisted by UNWomen and UNIFEM in India from 2008-2011, including initiatives funded and managed by UN-Women
and UNIFEM, and projects funded by the UN Trust Fund in Support of Actions to Eliminate Violence
against Women (UN Trust Fund) that were administratively supported by UN-Women and UNIFEM.
3.2
Violence against women and girls-related programming was guided by UNIFEM’s regional strategic plan
for the Asia Pacific and Arab States (APAS) 2008-2011. With regards to VAW at the regional level, the
strategy emphasized a) implementation and allocation of budgetary resources for anti-domestic violence
laws and to support advocacy efforts for enactment where there is none as recommended by CEDAW
concluding observations; b) development of a common advocacy agenda for trafficked women, women
survivor-victims of violence and HIV-positive women; c) emphasize prevention of VAW and raising
awareness among men and boys; and d) guidance for the informal justice system that is usually the first and
last recourse of women survivor victims of violence.272
In addition to its regional strategy, UN-Women also has more localized strategies. Work in the South Asia
subregion was guided by the UNIFEM subregional strategy 2008-2009, which included capacity-building
especially with regards to planning, process and implementation on three key themes (including violence
against women and girls, and HIV and AIDS).273 Under this framework, several VAW-related projects
across the Asia Pacific region were implemented with the support of UN-Women and the UN Trust Fund.
UN-Women supported 19 interventions amounting to a total of $56,264,924.274 The UN Trust Fund
supported 25 interventions and, across the Asia Pacific region, invested $15,598,604.275 Ending violence
against women and girls is one of five key themes of UN -Women’s strategic annual workplan 2012-2013.
Within this theme, there is an emphasis on capacity development, enhanced knowledge of and access to
VAW services, across a range of government, civil society, United Nations entities and donor partners.276
In response to the context of violence against women and girls in the region (see Section 2), SASRO
focuses its efforts on a number of key interventions, namely: women excluded from socio-economic and
political opportunities; women survivors of violence; widows; women living with HIV; home-based female
workers; and migrant workers. UN-Women South Asia also aims to transform institutions to increase
accountability in gender equality and women’s rights, and to strengthen the capacity and voice of women’s
rights advocates.277
3.3
VAW programming in India
Before 2011, positions at UNIFEM India in the area of ending violence against women and girls were
issue-based and staffing was allocated by project. Since 2011, UN-Women India has had a unit dedicated to
programming issues related to ending violence against women and girls. The work area also cuts across
other UN-Women India units, where it is integrated in a few specific projects assigned in 2011 to the work
272
UNIFEM. Regional Strategy for Asia-Pacific and Arab States (2008-2011): Answering to Excluded and Discriminated Women,
UN-Women. 2009. p.5.
273
UNIFEM. Subregional Strategy 2008-2009: South Asia subregional Office. 2008. p.2.
274
According to the portfolio provided by UN-Women.
275
Ibid.
276
277
UN-Women. Strategic Annual Workplan for India 2012-2013. 2012.
UN-Women. Report on the regional architecture review. UN-Women Executive Board. 24 April 2012.
August 2013
10
streams of the Economic Empowerment and Governance units (programme descriptions included in
Appendix IV).
In India, UN-Women currently has programming in 16 States, with EVAW programming in 10 States
(Rajasthan, Bihar, Jharkhand, West Bengal, Odisha, Andhra Pradesh, Karnataka, Uttar Pradesh, Tamil
Nadu and Kerala). Operations are managed from the office in Delhi without a physical presence in those
states.
UN-Women supports programming on violence again
UNIFEM and UN-Women VAW-related
women and girls in India through direct project support,
investments 2008-2011
278
core funding and the UN Trust Fund. According to the
UNIFEM project support – incomplete
UN-Women Field Capacity Assessment 2011, UN-Women
279
financial data
and UNIFEM India’s total portfolio was $18,799,923.
However, precise data on levels of investment from core
UNIFEM core funding – incomplete financial
data
and other resources in this theme were not tracked over this
period and is difficult to reconstruct since the unit working
UN Trust Fund to End VAW – US $6,648,898
to end violence against women and girls was only
established in 2011, and prior information on projects is dispersed among each project (and position). Also,
some staff who held these positions are no longer with UN-Women. Additionally, some projects do not
have violence against women and girls as their central focus, making it impossible to determine exact
contribution amounts.280
3.4
UN-Women and UNIFEM have been increasingly involved in the creation of UNDAFs in the South Asia
region, working in 10 countries, including the Pacific Islands, to mainstream frameworks for both gender
issues and rights-based approaches. In total, gender equality has been explicitly identified as a cross-cutting
theme in 17 APAS UNDAFs, including in India. In India, UN-Women was successful in advocating for
outcome 3 on gender equality (which includes preventing gender discrimination) to be included in the
current India UNDAF (2013-2017).281 This type of inclusion has provided a very important entry point for
UN-Women to work within the system.
In addition, the United Nations in India identified GBSS as a priority area for joint work and issued a
global interagency statement on preventing GBSS. This statement has been endorsed by Office of the
United Nations High Commissioner for Human Rights (OHCHR), UNFPA, UNICEF, UN-Women and
WHO. A joint United Nations response statement on ‘Addressing gender-biased sex selection in India’ was
then issued in India by UN-Women, UNFPA and UNICEF.282 UN-Women is a member of the United
Nations core group jointly addressing this issue in India.283
In India, UN-Women leads the UNCT Gender-Based Violence (GBV) Cluster which aims to facilitate
information sharing and increase coordination of responses on this issue. Section 4.2.5 provides further
details on this achievement.
278
See Appendix IV for a list of UN-Women/ UNIFEM India projects aimed at ending violence against women and girls.
UN-Women. UN-Women Presence Matrix – Field Capacity Assessment 2011. 2011.
279
280
281
282
Funding per project (where information is available) is detailed in Appendix IV.
Government of India and the United Nations. India UNDAF: 2013-2017. 2011.
This statement was initiated by UNFPA since it is the United Nations system lead on the issue of sex selection.
283
UN-Women, India National Consultation on the UN Secretary-General’s UNiTE to End Violence against Women Campaign, 31
October 2012. New Delhi, 2012. p.9.
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11
UN-Women has also facilitated a United Nations inter-agency consensus in Bangladesh, Bhutan, India, the
Maldives, Nepal and Pakistan to roll out the Secretary-General’s UNiTE campaign in South Asia. Further
information on UN-Women’s contribution to this initiative is available in Section 4.2.4.
August 2013
12
Findings
4.
4.1
Overview
46) For the period 2008-2011, what has been the contribution to results towards ending VAW in India
made by UN-Women’s predecessor entities? What are related lessons learned? (Section 4.2).
learned from its predecessor entities in view of planning, implementing, monitoring, and
evaluating their EVAW related work? (Section 4.3).
The lessons/best practices noted in the sidebars in this chapter reflect the views of consulted stakeholders
and, observations and findings from available evaluations, and observations made by the evaluation team
based on available data, the limitations of the case study should be noted.
4.2
4.2.1 General
This section presents evaluation findings on UN-Women’s contributions to results and related lessons
learned in India. Section 4.2.2 presents findings on context and relevance, which cut across the different
dimensions of the UN-Women mandate. Sections 4.2.3 and 4.2.4 present findings on contributions to the
key results outlined in the proposed changes to the reconstructed results logic for corporate work by UNWomen on EVAW, appropriate to the UN-Women India context (outlined in Appendix VI), which were
agreed upon by UN-Women India staff working to end violence against women and girls during a theory of
change workshop during the evaluation mission to India.284 Section 4.2.5 outlines a number of factors likely
to affect the sustainability of results achieved to date.
4.2.2 Context and relevance
Context
The table below summarizes the effects or influences some of the key contextual factors presented above
have had on the work of UN-Women’s predecessor entities in India concerning violence against women
and girls.
Contextual factor
High and increasing
prevalence of VAW,
particularly sexual
violence and trafficking
284
Effects/influences on VAW work in India
 These factors highlight the relevance of any VAW-related interventions conducted in
India (see below).
 The high prevalence of violence is likely to influence public perceptions and related
social norms in a way that makes VAW appear to be ‘normal’ and, as such, socially
tolerable. This poses additional challenge for trying to influence and change public
opinions, social norms, and related behaviours.
August 2013
13
Contextual factor
Effects/influences on VAW work in India
Persistent patriarchal
mindset and high gender
inequality
 Actual/potential limitations to the extent that the Indian government is or is willing to
Lack of application of
laws and legislation
concerning violence
 Highlights the relevance of VAW interventions related to monitoring of the application
Active and engaged
women’s movement and
civil society
 The consistent, although varied advocacy efforts of the women’s movement in India
Commitment from the
Government of India
towards ending violence
 As a newly emerging economy, India has the opportunity to divert resources internally
Ratification of
international instruments
 Ratification of international conventions could be effectively used for negotiations and
allocate resources to issues of social development, including on gender equality in
general, and for addressing VAW in particular.
of laws, as well as creating awareness to educate others who will demand their rights
are fulfilled.
which can drive the VAW agenda outside of the government and act as a catalyst for
both the government and United Nations/donor related efforts towards ending violence
against women and girls.
towards the ending violence against women and girls movement.
persuasion (advocacy) with the government to meet their international commitments.
 The definition of trafficking in the SAARC convention (i.e. is limited currently to
trafficking for prostitution) could be brought in line with the United Nations Convention
against Transnational Organized Crime (UNTOC) which most of the SAARC countries
(except for Bhutan) have ratified.
Recent VAW incidents
that have garnered highprofile media attention
 Create a heightened and time sensitive opportunity for furthering the VAW agenda.
 Highlights the relevance of VAW-related interventions in India.
Relevance
UN-Women and UNIFEM’s VAW-related work in India was relevant in view of the country’s global and
regional commitments under, for example, the Beijing Platform for Action, CEDAW and its own Eleventh
Five-Year Plan. VAW-related interventions responded to the broad priorities outlined in UNIFEM’s
strategic plan for the Asia and the Pacific region (2008-2011). Several stakeholders also pointed out the
relevance of VAW work in light of issues such as a lack of adequate service delivery mechanisms for
women, alignment with CSO advocacy efforts to combat VAW, and India’s ratification of the United
Nations Protocol on Trafficking (2011).
Furthermore, UN-Women and UNIFEM supported interventions, which have convened stakeholders to
provide inputs to India’s Twelfth Five-Year Plan in the absence of a comprehensive and coordinated
national approach to addressing VAW, has provided further relevance to the programme.
The following findings focus on the operational dimension of UN-Women’s mandate. They are grouped
around five areas of envisioned short- to mid-term results modified from the UN-Women headquarters
theory of change on ending violence against women and girls, in consultation with the UN-Women India
office at the theory of change workshop held during the country visit (see Appendix VI for agreed
modifications to the theory of change).
Legislation, policies and budgets in India adopted and implemented to respond to and prevent
August 2013
14
An important achievement in this area was the establishment of a monitoring and evaluation (M&E)
framework and tools to track progress on the implementation of the Protection of Women from Domestic
Violence Act 2005 (PWDVA). It was achieved through UN-Women and UNIFEM’s Staying Alive Ending Violence Through the Law project under which funding was provided to implementing partner
Lawyers Collective Women’s Rights Initiative. The monitoring tool is now in its sixth year of reporting and
is in the process of being transitioned to be administered by the government. Interviewed stakeholders
found this mechanism provided accountability in the application of PWDVA, since implementation of this
type of legislation remains an ongoing problem in India. Moreover, although legislation has become more
favourable to ending violence against women and girls over the last decade in India, the challenge remains
ensuring the implementation and monitoring of these laws.
UNIFEM India also signed a
Tripartite memorandum of
understanding with the Government
of Delhi and the NGO Jagori
through the Global Safe Cities
“Increased number of national development strategies that
Initiative (June 2010- June 2013),
incorporate gender equality in line with national commitments to
which has continued under UNwomen’s empowerment and human rights.” and “Increase in the
Women. Following work completed
numbers of Constitutions, legal frameworks and processes that
promote and protect women’s human rights.”
in New Delhi under the Safe Cities
initiative during the evaluation
(Subregional strategy for South Asia, 2008-2009)
period, public protests in Delhi in
response to the gang rape cases in Delhi (December 2012) and Gurgaon (2011) demanded the government
take action to make the city safer and address violence against women and girls. Although impossible to
attribute directly to UN-Women and UNIFEM, the awareness created by the programme had synergies with
the public protests demanding the government take action. Furthermore, because of the pressure to take
action, the Government of Delhi has been in consultation with UN-Women. Stakeholders noted that the
Safe Cities baseline survey research study (2009-2010) has been quoted repeatedly in the media, as it is the
only available data set on women’s safety in the city.
UN-Women and UNIFEM contributed to India’s Eleventh and Twelfth National Five-Year Plans, which
outline the countries goals and direction for development efforts over the next five years (the Twelfth FiveYear Plan covers 2012-2017). This was seen as a major achievement by consulted stakeholders. The
Twelfth Plan included a chapter dedicated to women and child rights where it states that “the ending of
gender-based inequities, discrimination and violence is an overriding priority in the Twelfth Plan, and
improvement in the adverse and steeply declining child sex ratio, is therefore recognized as an overarching
monitorable target of the Twelfth Plan for women and children.”285 UN-Women’s contribution to this result
included convening CSOs and feminist economists to provide substantive recommendations into the
planning process of this national plan.286
Although not yet adopted, UN-Women also contributed technical advice to the Ministry of Women and
Child Development to amend the Immoral Traffic (Prevention) Amendment Act, 2006 (Section 5C), which
unfortunately continues to be stalled by the government.
Key constituencies in India (local panchyats, NGO’s, self-help groups, men and boys, and gender
advocates) are mobilized to influence local policies and plans to take action to address ending
285
Government of India. Twelfth Five-Year Plan (2012-2017) Social Sectors, Volume III, Planning Commission, Government of
India. 2012. Available from http://planningcommission.gov.in/plans/planrel/12thplan/pdf/vol_3.pdf.
286
Mehta, A.K., M. Eapen and Y. Mishra. Locating Gender in the Twelfth Five-Year Plan Approach: Issues Emerging from a
Gendered Analysis. 2012.
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15
Through the Promoting Women’s Political Leadership and Governance in South Asia programme, research
for evidence-based advocacy was carried out in 2010 and 2011 with a specific outcome of prevention of
VAW before, during and after elections.287 The study reached out to women elected to Panchayati Raj
institutions, where more than 1.5 million women have been elected since 1995. Results showed that the
programme has gone on to work
with 67,000 women representatives
in India on issues of violence
against women and girls, to
increase their knowledge and
budgets to address VAW.”(Reconstructed corporate results logic)
“Gender equality experts, advocates and their organizations or
capacity to transform and
networks effectively demand the implementation of gender equality
implement policies and
dimensions in national laws, policies and strategies” and “women
programmes and advocate for
who are subject to exclusion and/or discrimination are able to
resource allocations to address the
successfully advocate for having their priorities incorporated in
issue.
relevant national policies, programmes, budgets and processes.”
UN-Women and UNIFEM also
successfully contributed to the
mobilization of community youth,
college and university students
demanding that the government
take action to ensure women’s
safety in Delhi, a result which the
UN-Women Safe Cities initiative
(2009-2013) in New Delhi has been
Public awareness and willingness to discuss violence against
working towards. This programme
women and girls are increasing in India, but traditional norms and
has been implemented through
values are such that it is not yet broadly understood in the context of
Jagori, a CSO partner, and was
gender inequality.
successful in engaging with and
raising awareness among diverse constituencies including communities, youth, women, police and various
government departments including urban planning to make infrastructure (street lights, roads) in
communities safe. Following work completed in New Delhi on Safe Cities during the evaluation period,
there has been increased awareness and engagement of youth on ending violence against women and girls,
in particular after the Delhi and Gurgaon rape cases. Although it is difficult to directly attribute this to the
Safe Cities initiative, it did contribute towards raising awareness and youth engagement. Furthermore,
following pressure to take action , as noted by various stakeholders, the government in Delhi consulted
with UN-Women and the Safe Cities research study (2009-2010) has been quoted repeatedly in the media
as one of few available data sets on women’s safety in the city.288
UN-Women and UNIFEM contributed to raising awareness and mobilizing civil society to influence action
on anti-trafficking at local, national and regional levels through Improving Protection of Women and Girl’s
Human Rights towards the Prevention of Trafficking (2006-2009) and the Initiative against Trafficking in
Women and Girls: State Accountability and Community Action 2011-2014. According to the UNIFEM
evaluation of the regional anti-trafficking programme in South Asia (2000-2009), UNIFEM generated
awareness, advocacy and strengthened national and regional networks against trafficking. This included the
formation of the Inter-Faith Religious Priest Forums in India and a state-level religious forum in Bihar,
sensitizing religious leaders to issues of violence against women and girls, and trafficking. Partner NGOs
developed websites to share information and other data sources and, through their teachings, religious
leaders played a key role in mobilizing local stakeholders to address trafficking and raising awareness to
287
UN-Women and ICRW. Violence, Economics and Power. 2012.
288
Other studies include police and safety guidelines by the Delhi Development Authority and findings of women’s
safety audits.
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violence against women and girls-related issues. In line with the SAARC convention, UNIFEM conducted
a regional assessment to examine national laws and institutional mechanisms to combat trafficking in
Bangladesh, India, Nepal and Pakistan. UNIFEM highlighted and integrated the linkages between HIV, and
unsafe migration and trafficking, and facilitated the formation of regional networks against trafficking such
as the South Asian Professionals against Trafficking and South Asian Forum against Trafficking.289
UNIFEM also encouraged religious leaders and local authorities to raise awareness on stigma and
discrimination of widows through a pilot project implemented in Vrindawan from 2009 to 2011. The
project ran prior to the start of the regional programme Empowerment of Widows and their Coalitions
which began in 2011.
As mentioned as a key result above, UN-Women and UNIFEM were able to mobilise diverse stakeholders
to identify priorities and targets for ending violence against women and girls by convening CSOs and
feminist economists to provide substantive recommendations into the planning process of India’s Twelfth
Five-Year National Plan.
National and local-level authorities in India enhance number and/or quality of services to
women and girl survivors of violence
Through Improving Protection of Women and Girl’s Human Rights towards the Prevention of Trafficking
(2006-2009) and Initiative against Trafficking in Women and Girls (2011-2014), working in collaboration
with the NCW, UN-Women and UNIFEM have contributed to the rehabilitation of survivors of trafficking.
Through these projects UN-Women and UNIFEM India have completed a large body of work on antitrafficking initiatives working with 28 partners, encompassing 45 programmes. Results achieved in this
outcome area include shelters for survivors of trafficking being set-up; the creation and dissemination of
research and self-help manuals addressing the psycho-social impact of trafficking on survivors; and
building the capacity of survivors through livelihood programmes and leadership training. Additionally,
UN-Women has contributed to enhancing economic empowerment of survivors of trafficking through
training and certifying women in cosmetic applications, leading to employment for these women outside of
the programmes.
The “Staying Alive" - Strengthening Access to Justice project implemented by Lawyer’s Collective, a
partner of UN-Women, has made
efforts to assist the government in
From the voice of a rights holder at the UN-Women supported
survivor’s group facilitated by the Lawyer’s Collective
enhancing the quality of services
to women and girls who survived
“We get strength and support from each other. It makes us feel that
violence through creating and
we are not alone and that we are not the only one suffering.”
disseminating a training reference
manual, a handbook on the Law of Domestic Manual for judges, and training sessions for key stakeholders,
members, and trainees from judicial and law enforcement communities. The Lawyer’s Collective
completed the fifth M&E report in 2011. The project also provided legal aid and counselling to survivors of
domestic violence (see sidebar), and created and facilitated survivors groups to enhance support to victims.
The Empowerment of Widows and their Coalitions (2011-2014) project, implemented by partner Guild for
Services in Vrindayan on behalf of UN-Women, has contributed to increasing access to information
regarding government pension
schemes and awareness of services
From the voice of a rights holder at the UN-Women supported
Guild for Services ‘Ma Dham’ home for widows in Vrindavan
and rights for widows through
rights-based peer counsellors and
“I was pressured to have children, but couldn’t get pregnant.
religious leaders. UN-Women has
Everyone taunted me and pressured me. I left my husband so he
289
could marry again to have children. I come here to collect grass and
learn skills for economic empowerment. I was able to learn about
the pension which gives me some money.”
Community Action Centre Nepal. Final Report – Regional Consultation on “Effective Implementation of the SAARC
Convention on Trafficking.” July 2006, p.2-3. Available from http://www.cacnepal.org.np/pdf/publication/SAARC%20Final%20Report.pdf.
August 2013
17
also contributed to increasing awareness of the gaps in the current publicly provided services and schemes
for widows. For example, as noted by project staff, the national pension scheme is for widows between the
ages of 40 and 64 years of age, meaning a large number of young widows cannot access the scheme. In
some states the pension scheme for widows does not allow widows who have a son older than 25 years old
to receive pension benefits because it is assumed that he will provide for his mother. The project is also
being implemented in Sri Lanka and Nepal.
Stakeholders have, however, noted that repeated cases of police insensitivity and lack of action, as well as a
biased and slow justice system can weaken the confidence of women in the services provided, and that
specialized services tend to be less available (if at all) to rural women.
Awareness of and public support for ending violence against women and girls in India from
decision makers, leaders and community members
Consulted stakeholders agreed that there has been a huge increase in public awareness, social media
involvement, and monitoring on sexual violence, sexual harassment and rape over the past five-to-ten
years. The gang rape incident in Delhi in December 2012 has further intensified the focus on these issues.
This has resulted in some related behavioral changes, in particular in the increased reporting of VAW
related cases (both to relevant institutions, as well as to the media), as well as an increase in people’s
willingness to publicly discuss the
issue.
Through Partners for Prevention
(P4P), a UNDP, UNFPA, UNContext specific events such as the
Women and UNV regional joint
aftermath of the gang rape case in Delhi (December 2012) provide a
strategic opportunity for UN-Women to capitalize on pushing the
programme for Asia and the Pacific,
agenda to end violence against women and girls forward with timely,
UN-Women contributed to creating
comprehensive support to the government and CSOs.
public awareness, new knowledge
and technical support to prevent
GBV in the region. P4P has three closely integrated project areas, namely: research, capacity development
and communication for social change. Policy advocacy cuts across these areas of work. Specifically, P4P
has leveraged social media for change in India with the “Must Bol” campaign targeting youth to examine
violence in their lives and speak out against it through social media and creative media to generate thoughtprovoking discussions on gender
and violence. The campaign
examines issues relevant to the
inner circle of young people’s lives,
“Awareness of and public support for ending VAW from decision
namely: self; body; family; peers;
makers, leaders and community members.” Reconstructed
intimate relationships; and the
corporate results logic)
workplace. “Must Bol” is led by
CYC, a youth organization, and has 14,000 followers on the social networking site Facebook. Their
campaign website video blog had over 30,000 views in 2011, and over 80 short films were created by
volunteer campaigners.290
290
P4P. Partners for Prevention – Annual Report 2011. 2012.
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18
The award-winning media campaign Bell Bajao was another important achievement for UN-Women and
UNIFEM in terms of raising awareness to dispel the belief that domestic violence is a private affair. The
campaign was carried out by Breakthrough Trust and received funding from the UN Trust Fund. The
campaign used well-known actors and innovative media to raise awareness and Breakthrough was later
able to raise more funds and scale-up the campaign. Most notably, an organization in Viet Nam working in
the area of domestic violence and HIV prevention expressed their intention to replicate the initiative, as
highlighted in the UN Trust Fund
Outcome Mapping Report
Bell Bajao project: Inspiring action
(2011).291 The campaign was also
identified as a case study for the
“In front of my house, there is a family that drags the woman by her
India Social and Tactical
hair. They drag her near the gas and say ‘burn yourself’. They don’t
give her food in winters I see her without warm clothes. In summers
Technology Collective in July 2011
she has no fan. She stays locking [sic] a room, like a prisoner. After
based on the “comprehensive and
watching the Bell Bajao ads, we started making some noise every
innovative ways through which it
time we heard violence. The violence used to stop for the time
used media (television, print, radio,
being. Eventually it stopped entirely. I did feel good about helping
internet and video van) in its efforts
her. Earlier I used to feel helpless around her. Now she’s happy, so I
to reduce domestic violence, and
am happy. It was like helping my own child. I want to thank Bell
Bajao for inspiring me to take action.”
stigma and discrimination faced by
women living with HIV and AIDS
Pramod Tiwari, government worker in India quoted on the Bell
integrated with grass roots
Bajao website. Available from http://www.bellbajao.org/about/
community mobilization (trainings/
workshops).”292
In addition, UNIFEM contributed to identifying vulnerable and excluded women who required enhanced
services and generated awareness of and public support for moving forward the ending violence against
women and girls agenda, in conjunction with the NCW. For example, the 2010 mapping study Dimensions
of Deprivation, was the first attempt to map and understand deprivation experienced by widows in India,
and identify areas in India vulnerable to trafficking of women and girls.293
Also under this outcome UN-Women launched an initiative to mobilise diverse stakeholders to identify
priorities and targets for ending violence against women and girls by convening CSOs and feminist
economists to provide substantive recommendations into the planning process of India’s Twelfth Five-Year
National Plan.
Making infrastructure and design of public spaces safer for women
UN-Women and UNIFEM’s Safe Cities initiative (2009-2013) in New Delhi, implemented by CSO partner
Jagori, has been transforming urban planning to make infrastructure (street lights, roads) and design of
public spaces safer for women. As noted above, subsequent to Safe Cities work completed in New Delhi
during the evaluation period, the government has made a public commitment to make some infrastructure
changes such as the addition of CCTV cameras on some public buses, in the aftermath of the gang rape
case in Delhi (December 2012) and resulting public outcry. Although it is impossible to directly attribute
this result to the Safe Cities initiative, it did contribute towards this outcome.
291
Further information was not available about the organization or whether the model was indeed replicated. Lafreniere, J., M.J.
Real and R. Wilson‐Grau. The United Nations Trust Fund to End Violence against Women – Mapping of Grantees’ Outcomes
(2006 to Mid‐2011). New York: UN-Women, 2011.
292
Ibid. p.28.
293
At time of writing, the study was pending publication after being shared with the Ministry of Women and Child Development
for validation.
August 2013
19
In terms of progress towards ‘bigger picture changes’ relating to VAW in India, consulted stakeholders
noted that whilst legislation has changed over the past decade, implementation and enforcement of the law,
and behavioural changes are slow to progress. It is widely agreed that India is far from reaching a place
where women and girls are free from all forms of GBV and from the threat of such violence, or where
VAW survivors are fully supported to live their lives.294 Several individuals even expressed concerns that
there might be a negative trend of increasing violence, although increased statistics may only be a reflection
of more women and girls coming forward to report cases of violence. Stakeholders noted a number of
positive changes, as outlined below, although given the limited amount of data available on VAW-related
changes in India, most of the information below is based on stakeholder perceptions and anecdotal
examples.
Institutional norms and behaviours slowly becoming more supportive of ending violence against women
and girls in India
Consulted stakeholders widely
agreed that there has been a
“Institutional and societal norms and behaviours are supportive of
significant increase in public
EVAW.” (Reconstructed corporate results logic)
awareness of violence against
“Key policy, service delivery and media institutions create enabling
women and girls over the past
institutional environments to promote and protect women’s human
rights in line with global, regional and national agreements.”
decade and increasingly so during
the past five years which can be
attributed to the exponential
increase in use of social media for rapid communication. This may have resulted in a number of behaviour
changes, in particular an increase in the reporting of VAW-related cases (to relevant institutions as well as
in the media).
Interviewed stakeholders agreed that much remains to be done for institutional and societal norms and
behaviours to be supportive of ending violence against women and girls, and providing the required support
to women and girls who survived violence.
Government at national and local levels is becoming increasingly accountable to women and girls for
prevention, protection and response to VAW through the implementation of gender-responsive budgets
and the establishment of information systems
The Government of India has committed to addressing VAW through its Twelfth Five-Year Plan (20122017), which includes targets in prevention, protection and response to VAW.295 It is a major achievement
to have these commitments
outlined in India’s national
development planning, and the first
“Government and service providers are accountable to women and
step towards the government
girls for prevention, protection, and response to VAW.”
becoming increasingly accountable
to women and girls on this issue.
“Community-level initiatives generate effective models for advancing
However, it remains to be seen if
women's human rights & eliminating gender inequality.” (Subregional
these commitments will be upheld.
strategy for South Asia, 2008-2009)
294
Overall envisaged impacts of UN-Women’s work on ending violence against women and girls as outlined in the (draft)
reconstructed results logic.
295
A national tracking system on VAW in India does not exist and there is an overall lack of information infrastructure. The only
statistics about violence are provided by the National Crime Records Bureau, although it is reported their statistics are neither
reliable nor up-to-date, and statistics from each state are factually and alarmingly incorrect. Available from
http://www.unhcr.org/refworld/country,,IRBC,,IND,,50b4a23b2,0.html.
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20
Women and girl who are survivors of violence demanding and having access to required services
While there are still significant weaknesses in the amount and quality of existing services for survivors of
VAW in India (shelters, counselling
services, access to justice,
comprehensive health system
“Women and girls who are survivors of violence demand and have
response to addressing VAW), the
access to required services.” (Reconstructed corporate results logic)
Government of India has
committed to improving access to
these services through its Twelfth Five-Year Plan moving forward.
It was also pointed out that women in rural areas of India tend to have limited, if any, access to specialized
services for VAW survivors.
The intergovernmental/normative dimension of UN-Women and UNIFEM’s mandate is largely carried out
at the global (headquarters) level. The evaluation explored whether linkages existed between country-level
operational work in India and global-level normative work, and what form they took. This area of work was
also an envisioned short or mid-term result modified from the corporate level UN-Women theory of change
on ending violence against women in girls. The modifications were made in consultation with UNWomen’s ending violence against women and girls unit in India at the theory of change workshop held
during the country visit (see Appendix VI for agreed modifications to the theory of change).
India makes informed decisions on and commits to taking action at all levels to end
UN-Women and UNIFEM have contributed to normative processes in both India and the region by
convening government and civil society partners to take stock of progress, gaps and emerging challenges,
particularly in the context of the Beijing Platform for Action, CEDAW and the UNiTE campaign.
As follow-up to the Beijing Platform for Action, UN-Women, UNIFEM and SAARC act as a regional
conveners to review progress on the 12 points of action, meeting every two years (2008, 2010 during the
evaluation period). UN-Women and UNIFEM are the only United Nations entities that have a
memorandum of understanding with SAARC, which is a way to bring regional countries together. UNWomen continues to play a convening role in this initiative, taking stock at ministerial level, bringing in
civil society partners to critique and create balance in discussion among key stakeholders. As convener,
UN-Women and UNIFEM guided the process to strategically narrow the focus from 12 to 2 areas at one
time to facilitate greater impact. These two areas are currently VAW and economic empowerment, and the
linkages between the two are also addressed.
Efforts have also been made to create the SAARC Gender Info Base, a database which includes a
component on violence on women and girls, with a particular focus on trafficking of women and girls.
However, interviewed stakeholders
agreed that this effort has been less
successful. Nevertheless, an
evaluation completed in 2011 found
that the SAARC Gender Info Base
around UNiTE and CEDAW) contribute to informing national
provided the first opportunity for
processes.
gender-based mapping and
disaggregation of available data at
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21
the national level for participating Member States and that UN-Women provided valuable technical advice.
The evaluation also found room for improvements, in particular in defining a results framework, and roles
and responsibilities.296
Additionally, to support India and other regional governments’ report on their CEDAW commitments, UNWomen co-hosted two intergovernmental peer learning workshops during the evaluation period for senior
government officials from SAARC nations (Afghanistan, Bangladesh, Bhutan, India, Maldives, Nepal and
Pakistan). These workshops are part of an ongoing process of intergovernmental sharing through UNWomen SASRO since 1999.
Since 2008, the UNIFEM SASRO
(and later, UN-Women) has been
successful in encouraging a United
Nations inter-agency consensus in
The regional UNiTE campaign has been successful in bringing
Bangladesh, Bhutan, India, the
together high-level government representatives, United Nations
Maldives, Nepal, and Pakistan to
entities, and other experts and practitioners from across the region.
roll out the Secretary-General’s
The UNiTE campaign facilitated discussion on ‘good practices’ and
UNiTE campaign in South Asia.
‘lessons learned’ regarding means to increase synergy between the
Bangladesh, India and the
governments, civil society and development partners to further
Maldives held national
efforts to end violence against women and girls. Regional campaign
consultations on UNiTE. In India
activities since 2011 have led to a range of both prevention and
response strategies to address VAW through the mobilization of
the focus was on accountability,
men, boys and religious leaders.
and changing mindsets and
practices. The UN Trust Fund has
supported the objectives of the UNiTE campaign through the Bell Bajao campaign; raising awareness
through media targeting men and boys; promoting the concept that domestic violence is not a private affair;
and monitoring the Domestic Violence law through the Lawyer’s Collective, which is now being used as an
advocacy tool to raise public awareness and ensure human and financial resources are in place to
implement the law.
The 57th Session of the Commission on the Status of Women (CSW57) was held at United Nations
headquarters in New York from 4 to 15 March 2013, the central theme of which was “elimination and
prevention of all forms of violence against women and girls.” UN-Women India presented research on
empowering widows and organized a panel discussion to raise the profile of India’s widows at the national
level and reflected India’s ongoing efforts in VAW over the last five years. It was a significant opportunity
for UN-Women to raise awareness of the violence faced by marginalized groups of women.
UN-Women and UNIFEM’s most visible contributions to violence against women and girls-related interagency coordination in India (and the region) have centred around the GBV Cluster in India and the UNiTE
campaign in South Asia.
As chair of the GBV cluster, UN-Women and UNIFEM have convened United Nations entities including
UNFPA, UNDP, UNICEF, UNESCO, UNHCR, UNODC, ILO, IFAD, UN-Habitat, UNAIDS and WHO to
critical monthly exchanges of information on issues related to ending violence against women and girls.
The cluster was formed in 2008 and was active throughout the period of evaluation. Despite the importance
of information sharing to greater coordination of work, interviewees reported that there is the potential for
UN-Women to provide a stronger leadership role as a lead entity in coordinating a response to violence
against women and girls issues in a comprehensive and timely manner. Interviewees suggested that UN-
296
UN-Women, South Asia regional office. Programme Evaluation of SAARC Gender Info Base of SAARC-UN-Women. January
2011.
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22
Women could focus its efforts on the macro-level picture by identifying strategic areas where focus is
needed and where gaps exist to end violence against women and girls in India, ultimately contributing to
improved coordination and coherence of partner efforts, including the United Nations system and civil
society.
An example of integration in United Nations system work is the P4P: Working with Boys and Men to
Prevent GBV, a joint initiative between UN-Women and UNIFEM, UNDP, UNFPA and UNV. According
to the project’s mid-term review, the collaboration of several United Nations entities gave legitimacy and
momentum to the project which was well received by CSOs. There were, however, some difficulties in
terms of coordination, since not all entities were equally involved or aware of programme activities and the
activities were not consistently integrated into the United Nations system at the country level.297
UN-Women and UNIFEM’s ability to bring other entities together is also demonstrated by UNIFEM
SASRO’s successful efforts to garner a United Nations inter-agency consensus in Bangladesh, Bhutan,
India, the Maldives, Nepal and Pakistan to roll out the Secretary-General’s UNiTE campaign in South Asia.
The table below summarizes key factors likely to support, or hinder the sustainability of results achieved to
date in the effort to end violence against women and girls in India.
Dimension
Supportive factors
National
ownership and
leadership
Explicit commitment to address VAW,
outlined in the Governments Twelfth FiveYear Plan.
International commitments under CEDAW.
India has not yet signed the CEDAW Optional
Protocol and has signed CEDAW with reservations.
Limited coordination capacity of the Ministry of
Women and Child Development, the Ministry
primarily responsible for gender equality issues and
limited implementation capacity of the NCW, a
partner to the Safe Cities initiative.
Although the government has been pressured into
implementing changes since the Delhi gang rape
case, political will and corresponding resources to
tackle the systemic and deeply entrenched issues
confronting ending violence against women and
girls are low.
Increased
capacity of
women’s
organizations/gen
der equality
advocates
Strong and experienced women’s
movement.
Presence of well established NGOs
working in support of gender equalityrelated issues.
Variety of approaches used by women’s
organizations and gender equality
advocates in promoting gender equality.
Limited core funds for NGOs, which must rely
largely on voluntarism and grants.
Some NGOs working in this area lack credibility/
accountability.
Limited capacity of some NGOs to develop
strategies for fundraising activities.
297
Menon-Sen, Kalyani. Partners for Prevention: A Joint Programme of the United Nations System in the Asia-Pacific Region MidTerm Review 2010. November 2010.
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23
Dimension
Supportive factors
Institutionalization
of ending violence
against women
and girls
India’s Twelfth Five-Year Plan is seen as a
national plan of action to address violence
against women and girls including
monitorable targets.
UN-Women and UNIFEM’s monitoring
framework of the Domestic Violence Act
developed with partner Lawyer’s Collective,
has been reported upon for five years and
is ready to be taken over by the
government.
It is not yet clear whether existing leadership, buy-in
from other government actors, and resources will
be sufficient in effectively implementing the Twelfth
Five-Year Plan.
Although there are many laws and policies to
address violence against women and girls,
implementation of these laws is weak.
Effective implementation of laws and strategies to
combat violence against women and girls is
hindered by capacity issues of government and
service providers, availability of resources, mindset,
limited inter-sectoral coordination, and limited
efforts to recognize and address VAW as a multisectoral issue.
4.3
This section presents evaluation findings on what have been and currently are the organizational strengths
and weaknesses of UN-Women, and lessons learned from its predecessor entities in view of planning,
implementing, monitoring and evaluating EVAW-related work
Most, if not all, of the following observations continue to influence the current work of UN-Women in its
efforts to end violence against women and girls.
Strengths
Consulted stakeholders emphasized the following strengths of the UN-Women and UNIFEM India office
team in planning and implementing VAW related interventions during the period under review.
Energy and personal dedication: All consulted government and civil society partners reported UN-Women
staff as being highly energetic and passionate about their work. The responsiveness of operational-level
staff to requests, and their willingness to help if and when needed was specifically highlighted.
Technical expertise and knowledge of the South Asian (sub)region: UN-Women staff were described as
competent and highly knowledgeable of the contextual realities in India and South Asia, to issues relating
to violence against women and girls and women’s rights.
Increasing credibility: Several CSO/NGO stakeholders noted that partnering with UN-Women and, as
United Nations entities, helped raise their organization’s credibility in the eyes of other actors (government
actors or potential funders) who otherwise might not have paid attention to their requests or considered
collaborating with them.
UN-Women’s mandate with its specific focus on Women: NGO/CSO partners and other United Nations
entities stated that UN-Women’s specific focus on women, and mandate on VAW in particular, is clearly
articulated and communicated. This mandate is a key factor distinguishing it from other United Nations
entities.
Successful creation of bases of evidence: UN-Women and UNIFEM have established a base of evidence in
key areas (mapping of deprived widows and trafficking, the Safe Cities initiative) that has resulted in
programming driven by evidence.
Developing a stronger M&E capacity: The UN-Women India office has been improving its M&E capacity
over the last couple of years despite the lack of core funding in this area (although core budget funding for
August 2013
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M&E is expected to begin in July 2013). Results are yet to be seen at the project-partner level, where
consulted stakeholders believed that partners funded by UN-Women could gain M&E capacity. Closer
engagement (provision of inputs and ideas) with UN-Women, rather than external M&E agencies who are
seen as auditors and are not close to the programme, would be mutually beneficial.
Regional convenor: UN-Women and UNIFEM have played an effective role in convening national
government and CSO’s at regional and national levels (in particular on the issue of anti-trafficking and
excluded and vulnerable populations).
Challenges and limitations
Available data indicate the following challenges and/or limitations to UN-Women’s ability to plan,
implement, monitor and evaluate its work on VAW in India.
Lack of personnel with strategic links: Several interviewed stakeholders were of the opinion that, although
the UN-Women India team has strong expertise in working with NGOs and an in-depth knowledge of the
issues of violence against women and girls in India, there is still a lack of appropriate personnel/advisors
who have strategic links with government to successfully ‘open doors’ and influence government attitudes
and processes.
Bureaucracy: Consulted CSO stakeholders and UN-Women staff noted that processing project
documentation and contracts is time intensive, with some projects experiencing significant delays.
Additionally consulted CSO interviewees found there is limited financial flexibility in terms of
changing or shifting programming as the project cycle progresses to adapt to changing demands and
needs.
Supporting CSO engagement with government: Some consulted CSO stakeholders noted that when
components of UN-Women programming require engaging and collaborating with government, they
do not have enough resources to do so effectively due to time, resource and capacity intensive
interaction processes.
Holistic approach to ending violence against women and girls: Consulted partners and documentation
recognize violence as a crosscutting issue that should be addressed in a holistic manner across UNWomen programming. Although there has been some movement in this direction in a few
programmes on land rights (linked with economic empowerment) and violence and elections (linked
with governance), opportunities exist for UN-Women to further integrate ending violence against
women and girls across its programming. Opportunities also exist to address the issue in a more
holistic manner, by focusing across the spectrum on: prevention to address the root causes; legal
frameworks and policies; and services addressing the physical, economic and psycho-social effects
on women.
Visibility and physical presence: With comparatively little funding, and only sufficient resources for a
physical presence in Delhi, consulted stakeholders agreed that UN-Women has limited visibility
compared to other United Nations entities in the country. Several consulted stakeholders also noted
that UN-Women has not yet been able to establish wide recognition for its connections with
government, especially with high-level officials at the ministerial level, despite its presence in the
capital. Some stakeholders also noted that the selection of government partners has not always been
the most appropriate for UN-Women’s strategy.
Effective leveraging of networks for knowledge sharing: Although UN-Women has been instrumental in
convening global, regional and national networks around issues related to violence against women and
girls, interviewed stakeholders believe it has not effectively leveraged these networks to facilitate exchange
of knowledge and expertise between these levels.
Short-term nature of projects: Consulted stakeholders agreed that short-term projects of one to two years,
as seen from 2008-2011, implemented to end violence against women and girls are less effective than longterm engagement. Additionally, consultants hired by UN-Women to advise/implement a programme in
August 2013
25
collaboration with government have been less effective, and therefore have less impact and are less
sustainable.
Coordination: Some interviewed stakeholders noted that UN-Women lacks the appropriate leadership
capacity to effectively coordinate and mobilize other key stakeholders, especially high-level government
representatives in a wide selection of ministries, to launch more proactive, comprehensive and timely
responses to pressing issues.
Most, if not all, of the previous observations on organizational strengths and weaknesses continue to
influence UN-Women’s current work on violence against women and girls. UN-Women is able to build
upon and expand the strong networks at national and regional levels that had been established under
UNIFEM, its status as a constituent and partner in the women’s movement, and the positive reputation it
has achieved with regards to the technical expertise and dedication to ending violence against women and
girls. Additionally, UN-Women India initiatives in ending violence against women and girls will benefit
from the research evidence base it has created over the past five years, to substantiate its advocacy with
government and the public, and its programming choices moving forward. The capacity of UN-Women to
maintain the role played by UNIFEM in India in gender-equality and violence against women and girlsrelated work will also continue to depend on the capacity and credibility of its staff, and particularly of the
future country representative. Also, the increasing bureaucratization of procedures may weaken the
capacity of UN-Women to support CSO advocacy work, which has been recognized by all stakeholders as
a key catalyst for change. Some of the organizational weaknesses of UNIFEM highlighted above remain to
be addressed and are likely to continue to affect the work of UN-Women until they are addressed.
4.4
This section presents evaluation findings on the extent to which UN-Women has strategically positioned
itself to add value in preventing and responding to VAW in global,298 regional and national contexts.
Strategic positioning by UN-Women on VAW issues in India and the region is strongly influenced by
organizational strengths and weaknesses outlined in Section 4.3, and by contextual factors covered
throughout the report.
Contextual factors
Major factors affecting UN-Women’s position and reach in the country and region include: the wide
population coverage; the vast geographic size of India and the South-Asian region; the diversity of
religious, cultural and linguistic groups; and the different forms of violence affecting women across these
groups. These contextual factors will continue to pose logistical challenges to UN-Women’s work, in
particular with the office in Delhi serving all of Bhutan, India, the Maldives and Sri Lanka. Despite this,
similarities and synergies of the work in these four countries, in particular UN-Women’s work on
trafficking and migration, mean approaches to ending violence against women and girls can continue to
build on the momentum regarding these issues in the South Asia region. Other key contextual factors likely
to influence UN-Women’s current and future strategic positioning are demand and supply-related. In terms
of ‘supply’, UN-Women is only one of two United Nations entities in India (the other being UNFPA)
focusing specifically on issues relating to violence against women and girls (although other entities address
particular forms of VAW as a component of their work e.g. UNODC on trafficking, UNICEF on mother
and child rights etc.). In terms of ‘demand,’ there are persistently high rates of a variety of forms of
violence against women and girls in India, and across the region.
298
The focus here is UN-Women positioning in terms of regional and national contexts.
August 2013
26
Attracting financial resources for the UN-Women office will also be a challenge because India is classified
as a middle-income country, and the Government of India has a substantial national and international
development budget with India providing bilateral funding to countries around the world.
Progress in defining and operationalizing the UN-Women mandate
Overall, UN-Women appears well-positioned to continuously support the efforts of national partners to end
violence against women and girls in India. UN-Women can build on UNIFEM’s experience and its good
reputation as an expert on violence against women and girls-related issues. The clear mandate and strong
relationship with the Women’s Movement, NGOs, government ministries and other United Nations entities
make UN-Women uniquely positioned to work on violence against women and girls in the country. Key
observations and challenges in putting its mandate into operation are outlined below.
Partnership with the Women’s Movement: Through its role as a constituency in the Women’s Movement,
UN-Women, and UNIFEM India before it, was able to advance human rights-based strategies at policy and
programme levels. This unique partnership positioning provides UN-Women India with greater legitimacy
in tackling issues of violence against women and girls. UN-Women is seen as strategically positioned to
link the women’s movement, civil society and government.
UNIFEM to UN-Women: Interviewed stakeholders believe the transition has resulted in enhanced
positioning because of increased capacities (financial299 and human resources) and its heightened
importance as a United Nations entity.
Established base of evidence on
“UN-Women is strategically positioned to share knowledge and
violence against women and girls:
bring different stakeholders together - nationally, regionally and
Consulted stakeholders recognize that
globally. However, it needs to work towards fully leveraging this
UN-Women acts as a catalyst in the
position.”
way that it influences discourses on
Source: Interviewed stakeholder
violence against women and girls in
India and the region, and has notably
created a quality base of evidence on many surrounding issues (e.g. trafficking, widows, Safe Cities), such
that it is strategically positioned to provide expert evidence-based advice.
Networking: UN-Women has convened key stakeholders around violence against women and girls issues at
regional and national levels, but interviewed stakeholders were of the opinion that it had not fully reached
its potential in effectively harnessing these networks to increase the impact of their work.
Government relationships: Although UN-Women and UNIFEM have established relationships with
government at the national and local levels, consulted stakeholders believe UN-Women has limited
visibility and leverage with strategic high-level government officials, in particular compared to other
United Nations entities, in order to effectively mobilize political will.
UN-Women’s coordination role: Interview data suggest that UN-Women could provide strategic direction
for work towards ending violence against women and girls. It was suggested that UN-Women could be
most effective in its coordination role by carrying-out a needs assessment to map out issues and areas of
work where attention could be focused; ask United Nations partners to identify the areas in which they are
working; and subsequently outline gaps and areas to be strengthened.
Mainstreaming work on violence against women and girls in UN-Women: Some UN-Women staff and
external stakeholders believe an introspective look at the positioning of ending violence against women and
girls-related work would be beneficial. This could be carried out with a view to: better integrating the
299
The perception of increased financial resources is a result of the UN-Women India office efforts. The office successfully raised
approximately $10 million from outside donors, rather than an increase in core budget allocation when it transitioned from
UNIFEM to UN-Women.
August 2013
27
violence against women and girls agenda throughout the work of UN-Women and other United Nations
entities as a cross-cutting issue; harnessing their strengths and comparative advantage; and moving the
agenda through partnership.
5.
Recommendations
The following suggestions and recommendations to the UN-Women offices in India and headquarters are
based on the data collected for the country case study.
Contributions to results
The UN-Women subregional (multi-country) office in India should:
1) Consider sustainability in project planning: When supporting short-term projects, in particular
initiatives with capacity-building components, measures to enhance the potential sustainability of
results should be incorporated. Similarly, where applicable, it should aim to build in opportunities
for follow-up and continued support and avoid ‘one-off’ stand-alone trainings and projects.
2) Continue building relationships with government: UN-Women has had success in some
initiatives that required fostering strong working relationships with government personnel (e.g.
Delhi Department of Women and Child Development for the Safe Cities initiative). However,
consulted stakeholders noted that UN-Women India would benefit from establishing stronger
relationships with key strategic and high-level government personnel in order to further the agenda,
especially since the demands of ending violence against women and girls are multi-sectoral and
there is a need to widen cross-sectoral collaboration with the government. UN-Women needs to
think strategically about how to best partner with the government to ensure the sustainability of
efforts.
3) Conduct contact mapping within government ministries: In order to further the violence against
women and girls agenda, foster better relations and identify key government entry points and
potential allies, UN-Women India could conduct a mapping of government ministries to identify
appropriate contacts with whom to strategically engage.
4) Support formulation of a national action plan and strategy: Although India has acknowledged
and integrated measures to address ending violence against women and girls in its Eleventh and
Twelfth Five-Year Plans, India is yet to create a formal national action plan or strategy, as called
for under the Beijing Platform for Action and the UNiTE campaign.300 UN-Women could therefore
encourage and support the government in formulating such a national strategy and plan of action.
5) Facilitate cross-sectoral partnerships and initiatives and a holistic approach to ending
violence against women and girls: Although UN-Women has started to integrate ending violence
against women and girls-related considerations into programming, emphasis should be on crosssectoral initiatives and partnerships (e.g. addressed along-side economic empowerment) since it is
rarely a stand-alone issue.
6) Continue and expand national tracking of support to ending violence against women and
girls: One of UN-Women’s greatest achievements has been its support to the Lawyer’s Collective
in establishing a monitoring framework for the 2005 Protection of Women from Domestic
Violence Act. Based on its success, this type of national monitoring and tracking support could be
further expanded to monitor government and civil society commitments and progress.
Organizational strengths/weaknesses
300
UNIFEM. Introductory Brief and Suggestions: Formulating National Action Plans to End Violence against Women and Girls.
2010. Available from http://www.un.org/womenwatch/daw/vaw/egm/nap2010/EGM.GPNAP.2010.SP.02.pdf.
August 2013
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7) Fund partners through longer-term and more flexible funding approaches: During the
evaluation period , UN-Women/UNIFEM has supported CSOs with short-term project support.
Consulted stakeholders noted that this type of support does not allow CSOs to fund the appropriate
level of staff to run long-term projects, nor does it allow for flexibility in use of programme funds.
A long-term approach to funding would allow CSOs greater flexibility in their work (maintaining
appropriate accountability mechanisms), while helping them ensure their sustainability (ability to
retain staff and continue programming by integrating the activities within a larger CSO/institutional
framework rather than limited project-based implementation).
8) Extend phases in longer-term programming: Consulted stakeholders found that a two-year
phased approach on a ten-year programme is not very effective as grantees are in a constant state of
planning, reporting and applying for funding which takes up excessive use of scarce staff resources
and is not conducive to achieving results. For example, the Safe Cities initiative has a 10-year
timeframe with funding and contracts to be renewed every two years. UN-Women could consider
extending the phases in these types of longer contracts.
9) Strengthen M&E of partner implemented projects: The UN-Women India office should
consider further strengthening support to, and building the capacity of, partner implementing
agencies in M&E rather than using external M&E professionals to monitor and evaluate results.
UN-Women strategic positioning
10) Ensure UN-Women’s visibility with government: UN-Women India should ensure that the
Government of India recognizes UN-Women’s assets and comparative advantage, in particular its
ability to connect the on-the-ground needs to national, regional and global policy dialogue.
UN-Women at headquarters should:
11) Increase timely sharing of best practices from other countries: Being able to offer and/or
respond to government/ civil society requests with best practices solutions in a timely manner when
a point of crisis/opportunity presents itself in a local context, is crucial to UN-Women’s reputation
as a knowledge leader in ending violence against women and girls. UN-Women at headquarters
should be ready to engage in the sharing of best practice models in a timely manner in response to
high-profile incidents.
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6.
This section briefly summarizes key observations from the India country case study that can help inform
the overall evaluation, in particular concerning the evaluation’s intent to elaborate theory/theories of
change for UN-Women’s work on VAW. Observations are structured according to the three dimensions of
UN-Women’s mandate.
Exhibit 6.1 Implications for the overall Evaluation
Operational
Dimension
UN-Women strategies/
types of interventions in
India
results logic
VAW work in India/Risks
 Providing financial and
 Important changes made in
 Work to end violence against
technical support to help
strengthen the capacity of
national partners, in
particular the national
gender machinery and
women’s organizations.
 Providing access to
relevant information, tools,
and exchange
opportunities, which
constitutes a key element of
capacity-strengthening
work.
 Facilitating dialogue
mechanisms among and
between government and
non-government actors at
regional and national levels.
wording of the four existing
short- to mid-term results in
the corporate reconstructed
theory of change, to
specifically reflect results in
the Indian context. An
additional (fifth) result reflects
the work being done under
the Safe Cities initiative in
order to improve the safety of
public infrastructure and
301
spaces for women.
 At the short- to mid-term
results level, UN-Women
India staff recognized how
this level of results closely
mirrors their programming on
VAW (with nuanced changes
suggested as outlined in the
bullet above), and identified
with the results logic in view
of country-level work. They
also identified with the short
to mid-term level result on
normative work, and the midto long-term results, which
they considered to also fit
UN-Women India’s work on
ending violence against
women and girls.
women and girls requires the
capacity to work with both key
government stakeholders and
CSOs, and the capacity to
facilitate dialogue between the
two.
 Evidence based VAW specific
policies/ action plans and
related monitoring frameworks
enhance government
accountability for addressing
VAW.
 The reform of national laws is a
key achievement upon which
further achievements of the fight
against violence against women
and girls rely.
 Continued pressure on
government for changes in
legislation relies on the capacity
of the women’s movement to
ally with other CSOs and to
connect with public voices (e.g.
protest demands/pressure on
government).
301
See Appendix VI
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30
Normative
Inter-Agency Coordination
Dimension
types of interventions in
India
results logic
VAW work in India/Risks
 Supporting national
 Changing mindsets and
partners to collect, analyze,
and use data on the
national context of VAW for
evidence-based policy
development.
 Supporting national
partners in developing
context-specific training
programmes for service
providers.
behaviours requires
consciousness-raising in
ministries and high-level
decision makers and also the
general public through the
media.
 To be effective, the national
response to VAW must be
coordinated and multi-sectoral.
 Individual and collective
knowledge about VAW issues
which is evidence based is the
basis for influencing institutional
and social norms, and
introducing behavioural
changes.
 Access to reliable data on the
degree and forms of violence
increase the effectiveness of the
advocacy work with
government.
 Coordination of the United
 Contribution to enhancing the
 Effective inter-agency
Nations GBV Cluster in
India.
 Coordinating United
Nations entities on the
UNiTE campaign.
short-term coordination of
United Nations system work
on ending violence against
women and girls.
 Contribution to strengthened
United Nations system
accountability in this regard
(avoiding overlap and
duplication of work through
information sharing).
coordination may require a highlevel of financial and human
resources.
 Competition among United
Nations entities for limited
resources.
 Promoting knowledge of
 Using CEDAW and other
 Government and civil society
and use of CEDAW and
other pertinent
internationally agreed
development goals among
national actors
 Presenting evidence-based
research in global forums to
inform national processes.
pertinent internationally
agreed development goals to
guide work by UN-Women
and national partners.
accept internationally agreed
development goals and are
willing to work together with the
United Nations to implement.
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Appendix I
Bharati Silawal Giri, EVAW Specialist, UN-Women SASRO
SuneetaDhar, Director, JAGORI (NGO)
Dhana Shree, Sex-Selective Abortion Specialist, UNFPA
SankarSen - Head, Human Rights Division, Institute of Social Sciences, New Delhi
August 2013
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Appendix II
Evaluation Matrix
Purpose
Approach
CSO focus
interviews or focus
National
Government
interviews
UN-Women
interviews
Observation
UN CMT interviews
Country records
Case Studies
LINES OF INQUIRY
METHODS
√
√
√
√
√
√
√
√
√
over time?
√
√
√
√
at country level?
√
√
√
√
√
√
√
√
√
√
√
√
August 2013
35
√
CSO focus
interviews or focus
National
Government
interviews
√
UN-Women
interviews
√
UN CMT interviews
Observation
LINES OF INQUIRY
METHODS
Country records
Case Studies
√
√
√
√
√
√
√
√
August 2013
36
Appendix III
Documents Reviewed
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http://www.unwomen.org/wp-content/uploads/2012/04/EB_UNW_-Regional-architecture-2012.pdf.
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UN-Women (2012c). India National Consultation on the UN Secretary-General’s UNiTE to End Violence
against Women Campaign.
UN-Women (2012d). South Asia subregional office. Available from http://www.unwomensouthasia.org/
UN-Women (2011a). UN-Women Presence Matrix – Field Capacity Assessment 2011.
UN-Women (2011b). Press Release: Senior Bureaucrats from SAARC Nations Come Together on
Intergovernmental Learning on CEDAW Reporting and Implementation in South Asia. Available from
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UN-Women (2011c). Violence against Women Prevalence Data: Surveys by Country. Available from
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UN-Women (2011d). National Commission for Women (1992). Available from
http://sgdatabase.unwomen.org/searchDetail.action?measureId=36823&baseHREF=country&baseHR
EFId=633
UN-Women and International Center for Research on Women (2012). Violence, Economics and Power: Decoding the
impact of violence and economic insecurity on women’s political participation in India. Available from
http://www.unwomensouthasia.org/assets/Violence-Economics-and-Power-Decoding-the-impact-of-violenceand-economic-security-on-women%E2%80%99s-participation-in-India.pdf
UNIFEM (2010). Introductory Brief and Suggestions: Formulating National Action Plans to End Violence
against Women and Girls. Available from
http://www.un.org/womenwatch/daw/vaw/egm/nap2010/EGM.GPNAP.2010.SP.02.pdf.
UNIFEM (2009). Regional Strategy for Asia-Pacific and Arab States (2008-2011): Answering to Excluded
and Discriminated Women.
UNIFEM (2008). Subregional Strategy 2008-2009: South Asia Subregional Office.
Documents related to specific UNIFEM/UN-Women or UN Trust Fund Projects
Lafreniere, J., M.J. Real and R. Wilson‐Grau (2011). The United Nations Trust Fund to End Violence
against Women – Mapping of Grantees’ Outcomes (2006 to Mid‐2011).
Menon-Sen, Kalyani (2010). Partners for Prevention: A Joint Programme of the UN System in the AsiaPacific Region Mid-Term Review 2010.
Partners for Prevention (2012). Partners for Prevention – Annual Report 2011. Available from
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UN Trust Fund (2011). United Nations Trust Fund to End Violence against Women: Six Monthly Progress
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Jones, C. Indian victim of gang rape dies in hospital in Singapore. The Guardian, 28 December 2012.
Available from http://www.guardian.co.uk/world/2012/dec/28/indian-gang-rape-dies-singapore
Khazan, O. How India’s rape name-and-shame database could backfire. The Washington Post, 28
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Meniolaza, Gustavo. India: Corruption affecting investment and economic growth. Future Directions
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The Times of India. Gauhati HC forms 5 special courts for rape cases. The Times of India, 31 January 2013.
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http://www.oecd.org/social/socialpoliciesanddata/49170475.pdf
UNFPA (2010). Guidance Note on Prenatal Sex Selection. Available from
http://www.unfpa.org/webdav/site/global/shared/documents/publications/2010/guidenote_prenatal_sexselection.p
df.
UNFPA and Centre for Development Studies (2009). Declining Child Sex Ratio (0-6 Years) in India: A
Review of Literature and Annotated Bibliography. Available from
http://india.unfpa.org/drive/Bibloigraphy.pdf.
Websites
Bell Bajao. About Bell Bajao: Bring Domestic Violence to a Halt. Available from
http://www.bellbajao.org/home/about/
OECD (2011). Social Institution and Gender Index 2011. Available from
http://genderindex.org/country/india
United Nations in India. UN Resident Coordinator’s Office. Available from
http://www.un.org.in/Pages/index.html
UNDP (2011). India Country profile: Human Development Indicators. Available from
http://hdrstats.undp.org/en/countries/profiles/IND.html
UNDP (2011). Human Development Report: The Human Development Index and its Components.
Statistical Annexes: Table 1. Available from http://hdr.undp.org/en/media/HDR_2011_EN_Table1.pdf
August 2013
39
UNDP (2011). Human Development Report: Gender Inequality Index and Related Indicators. Statistical
Annexes: Table 4. Available from http://hdr.undp.org/en/media/HDR_2011_EN_Table4.pdf
UNHCR (2012). India: Rates of women lodging complaints with police for violent crimes; police response
to female victims of violence. Available from
http://www.unhcr.org/refworld/country,,IRBC,,IND,,50b4a23b2,0.html
UNiTE to End Violence against Women. Available from http://endviolence.un.org/
World Bank (2011). Poverty and Equity Data. Available from
http://povertydata.worldbank.org/poverty/home
World Bank (2011). Poverty and Equity Data: India. Available from
http://povertydata.worldbank.org/poverty/country/IND
August 2013
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Appendix IV Stakeholder
s Consulted
Organization
Role/Title
UN-Women
UN-Women
Deputy Director
In Person
UN-Women
Acting Manager South Asia
In Person
UN-Women
Director MCO
In Person
UN-Women
M&E Specialist
In Person
UN-Women
Information Officer
In Person
UN-Women
Programme Associate
In Person
UN-Women
Programme Officer
In Person
UN-Women
Former Regional Advisor
In Person
UN-Women
Head Governance Unit
In Person
UN-Women
Women’s Economic Empowerment
Specialist
In Person
UN-Women
Program Assistant
In Person
UN-Women
Monitoring and Evaluation Officer
In Person
UNFPA
Senior Programme Officer, Gender,
UNFPA
In Person
UNFPA
National Programme Officer, UNFPA
In Person
UNDP
United Nations Resident Coordinator and
UNDP Resident Representative
In Person
UNDP
Gender, UNDP
In Person
UNICEF
Child Protection Specialist, UNICEF
In Person
UNHCR
Senior Protection Officer, UNHCR
In Person
UNDP
Assistant Country Director, HIV &
Development Unit, UNDP
In Person
State Commission for Women
Chairperson, State Commission for
Women
In Person
Department of Women & Child
Development, Govt of NCT of Delhi
Director, Department of Women & Child
Development, Govt of NCT of Delhi
In Person
Police
Retired. Former Director General of Police
In Person
Partners/Stakeholders in India
UNCT/Other United Nations entities
Government
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Organization
Role/Title
NGOs/Civil Societies
Butterflies
Founder/Director of Butterflies-Programme
with street and working children
In Person
Jagori
Director, Jagori
In Person
Jagori
Project Assistant, SaferCities Program,
Jagori
In Person
Jagori
Senior Advisor, Safe Delhi Initiative, Jagori
In Person
Jagori
Members of JAGORI Youth Group
In Person
Shakti Vahini
President, Shakti Vahini (anti-trafficking
organization)
In Person
Cross-Border Anti-Trafficking
Network
Cross-Border Anti-Trafficking Network
In Person
Breakthrough Trust
Director, Breakthrough Trust (NGO)partner in Bell Bajao (UN Trust Fund
Project)
In Person
Lawyer’s Collective
Lawyer’s Collective (UN Trust Fund
Project)
In Person
Lawyer’s Collective
The Survivor’s Group, Lawyer’s Collective
(UN Trust Fund Project)
In Person
ApneAap Women Worldwide
Founder/President, ApneAap Women
Worldwide, Kolkata
Skype
the Youth Collective
Process Facilitator, The Community
Learning and Leadership Journey,
Community – the Youth Collective (CYC)
In Person
Founder Member, CYC
In Person
Associate Coordinator, Leadership &
Learning Journey, Must Bol Campaign,
CYC
In Person
Saarthak
Founder Director, Saarthak
In Person
Sanlaap
Executive Director & Founder Secretary,
Sanlaap
Skype
Guild for Service
Guild for Service
In Person
Focus group with Widows from
Vrindavan
Vrindavan Widows
In Person
Saksh
Advocate and Equality Consultant at Law,
Founder/former Director of Sakshi (NGO)
In Person
Church of North India
Church of North India
In Person
Independent Consultant
Co-author, final evaluation of the trafficking
programme
In Person
National Human Rights
Commission
Former Director National Police, Chief
coordinator, National Human Rights
Commission (NHRC) and UNIFEM project
on “Trafficking Women and Children”
In Person
Others
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42
Appendix V
Sample Interview Protocol (for
NGO/CSO Partners)
Interview Guide
CSO Representatives
study. Thank you for agreeing to this interview. This document is intended to be a guide for our discussion,
which I expect will take roughly one hour. All interviews are confidential, in that information you provide
will only be reported in aggregate, summarizing all key informant interviews without attribution to the
sources.
Guiding Questions
1. Your role
EVAW?
2. Relevance
documents
networks etc.
interventions?
entities and why?
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Guiding Questions
why?
women and girls;
groups)
programming?
methods.
August 2013
44
Guiding Questions
country]?
actors
on in future?
4.2 In that same time frame, are there organizational mandate: operational, normative, inter-agency
coordination
going forward?
Other?
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45
Appendix VI
Regional anti-trafficking programme in South Asia
UNIFEM operated two regional anti-trafficking programmes in India and other countries (see next project
listed). In 2000, UNIFEM launched the nine-year project which received $8,774,460 from different donors.
The project sought to address the structural causes of trafficking in women and girls, namely, the political,
social, economic challenges, and severe human rights violations that fuel trafficking. It focused mostly on
policy advocacy with the regional governments to engage them in the fight against trafficking.
Improving Protection of Women and Girl’s Human Rights towards the Prevention of Trafficking
In 2006, UNIFEM started a second, more-localized phase to the regional project which took place in India
only and sought to increase awareness about and advocacy against trafficking with community groups and
other smaller stakeholders. The project also had a component designed to build capacity of States to
provide services to trafficking victims. The project received funding for $3,344,354 over a three–year
period.
Initiative against Trafficking in Women and Girls: State Accountability and Community Action 2011-2014
The initiative was launched in collaboration with the NCW to prevent internal trafficking of women and
children. It focused on three panchayats of Andhra Pradesh, Bihar and West Bengal and in three
panchayats of Jharkhand, Orissa and Rajasthan. Donor contributions included €240,000 from Europe Aid,
€400,000 from the Government of Spain and a contribution of €60,000 from UN-Women. The programme
aims to sensitize and empower communities to adopt the human rights approach to claim their entitlements,
prevent VAW and reduce vulnerability to trafficking in the source areas, as well as creating opportunities
and enhancing the capacities of survivors and vulnerable women and girls to undertake sustainable
livelihoods.
Partners for Prevention (P4P)
P4P is a UN-Women, UNDP, UNFPA and UNV regional joint programme for Asia and the Pacific that
provides new knowledge and technical support to prevent GBV in the region. P4P has three main project
areas that are closely integrated: research, capacity development and communication for social change.
Policy advocacy cuts across these areas of work.
Safe Cities (2008 -2017)
The Safe Cities initiative builds on years of advocacy and best-practices on women’s safety from
around the world. Between 2008 and 2009, UNIFEM supported the development of a Safe Cities
project through rigorous research and the selection of cities (New Delhi was one of them). UNIFEM
conducted safety audits, built the capacity of leaders and raised awareness about women’s safety.
Reduction of Violence against Women: Property Ownership and Employment in Rural Haryana
This research study was completed by UNIFEM’s Economic Empowerment Unit302 based on fieldwork
conducted in June-August 2011. The study sought to determine the effect of property ownership and
economic independence of women in reducing violence, especially spousal violence, in rural Haryana.
302
This project did not take place within the Ending Violence against Women and Girls unit in UNIFEM/UN-Women India, and
thus is an example of how the issue of ending violence against women and girls cross-cuts other units in UN-Women India.
August 2013
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Dalit Women Livelihoods Accountability Initiative, Rural Employment Guarantee Scheme for Government
of India (2009-2012)
This research study was completed by UNIFEM’s Economic Empowerment Unit1303 based on fieldwork
conducted in September-October 2011. The study sought to understand women’s land rights by
documenting how women acquire land, their feelings about tenure security to that land, exploring their
knowledge of their land rights, and the extent to which they would like to and expect to gain access to
family land through inheritance.
Promoting Women’s Political Leadership and Governance in South Asia (2009-2012)
Funded by the Government of Norway, this programme was situated in the Governance section in UNWomen India.304 The programme aimed to empower elected women representatives in local governance to
make public policy and resource allocation patterns responsive to women’s human rights. The programme
covers Bangladesh, Bhutan, India, Nepal and Pakistan. In India, the programme is co-owned by the
Ministry of Panchayati Raj, Government of India. One of the key outcomes of the programme has been the
generation of a body of knowledge on women’s political leadership and governance in India and South
Asia.
Justice for Women – Empowerment through the Law (2006-2008) – $140,000
The project sought to develop material for various stakeholders to increase their ability to protect women
from violence. The group sought to develop a bench manual for judicial officers to help them deal with the
PWDVA Act 2005; a training manual with protection guidelines for protection officers and service
providers; create an audio-visual campaign against domestic violence; and build the capacity of some
stakeholders to fight domestic violence. This project was funded by UNIFEM. 305
Bell Bajao and Reducing the Twin Pandemics of HIV/AIDS and VAW
Bell Bajao is an award-winning campaign to raise awareness about domestic violence and how to
stop it. Breakthrough Trust, the implementing-CSO, created a website, television campaign and other
types of awareness media. Reducing the Twin Pandemics of HIV/AIDS and VAW is another project
from Breakthrough Trust which consisted of a large media campaign to raise awareness about the
link between HIV/AIDS and VAW. The campaign targeted men of all ages, religious leaders and local
leaders.
UN Trust Fund
Ending Violence against Women through the Law – $997,853
To overcome the gaps in coordination between judiciary, protection officers, legal aid, service providers,
shelter homes, medical facilities and the police, this project supported the implementation of training
workshops on the relevant laws and multi-agency responses. This project extended from 2008 to 2011 and
was implemented by the Lawyer’s Collective.
“Staying Alive" - Strengthening access to Justice (2006-2013, including a one year no cost extension)) –
$997,853
Implemented by the Lawyer’s Collective, the outcomes of this project include: enhanced capacities of law
enforcement officials (judiciary and police) and other government officials to ensure effective
implementation of the PWDVA at national and state (Delhi, Maharashtra and Tamil Nadu) levels by 2015;
institutionalization of an M&E system by the Ministry for Women and Child Development for the effective
303
Ibid.
Ibid.
305
Grant Agreement signed by UNIFEM and the Lawyer’s Collective in 2006.
304
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implementation of the PWDVA by 2015; increased access to legal services and support to women who
are/have been subject to domestic violence in Delhi and Mumbai; and ensuring access to the Lawyers
Collective Women’s Rights Initiative’s legal aid cell.
Community Initiative to Address Violence against Women in Sex Workers in Karnataka, India – $999,999
This three-year project (2011-2014) is implemented by the Karnataka Health Promotion Trust. It has
christened the project Samvedana to signify the empathy toward the marginalised group it serves. Its
objective is to create an inclusive society free from VAW in sex work. The project works in 15 of the 30
districts of Karnataka.
Subregional project
Anti-harassment Committee and Violence Prevention System in Export-Oriented Garment Factories –
$471,000
This three-year project (2011-2014) is currently taking place in Bangladesh and India and is being
implemented by Wear Fair. The project objective is to reduce VAW in export-oriented garment factories in
these countries.
Regional project
Empowering Indigenous Women in Traditional Customary Institution – $633,000
This project aimed to build a pool of local indigenous women to engage in advocacy and community
mobilization to reform local legislation and customary law. These efforts sought to put an end to VAWG,
transform the dowry systems and increase women’s participation in decision making. The project began in
2009 and took place in the Philippines, Nepal and India. It was implemented by the Asia Indigenous
Peoples Pact Foundation.
Cross-sectional projects
Gender Inclusive Cities: Increasing Women’s Safety by Identifying and Disseminating Effective and
Promising Approaches that Promote Women’s Equal Access to Public Spaces- $999,300
This project was implemented by Women in Cities and sought to promote women’s “rights to the city” i.e.
the right to live, move around and work. The project mapped out the geography of public gender exclusion
and its interaction with race, caste, religion and migrant status and identified effective policies, tools and
strategies for greater equality for women and girls. The project took place in Cairo, New Dehli, Kigali, Port
Moresby and Quito over three years from 2008-2011.
Engaging Men to End Gender-Based Violence: A Multi-Country Intervention and Impact Evaluation Study
- $999,893
In the context of this project, Instituto Promundo and partners sought to identify effective strategies for
engaging men in ending VAW, and contribute to the global knowledge base in this critical area.
Educational workshops and campaign activities were tailored to requirements in each country and centred
on deconstructing traditional notions of masculinity and manhood, promoting gender-equitable and nonviolent alternatives, and encouraging positive changes in attitudes and behaviours. The project ran in
Brazil, Chile, India and Rwanda from 2008-2011.
Other: Regionally (UN-Women SASRO) funded project
SAARC Gender Info Base of SAARC-UN-Women, South Asia regional office
UN-Women SASRO was the collaborating body and the primary funder of the project whose thematic
areas covered: feminization of poverty; women’s health (including HIV and AIDS); and VAW (especially
trafficking in women and children). The key objectives of the info base are to: 1) Develop a regional
resource knowledge base by collecting, processing and analyzing agreed set of gender-related information
August 2013
48
in the region; 2) enable advocacy with national governments and international agencies for introducing a
gender perspective in governance and bringing about greater gender equality, equity and sustainable
development; 3) catalyze gender mainstreaming in the region by enabling, informing, and influencing
governments to develop appropriate and gender sensitive policies, programmes and plans using the vast
reservoir of gender related information; 4) facilitate drafting of a South Asia regional plan of action to
promote gender equality, peace and development and end gender discrimination; and 5) promote regional
learning and provide a forum for dialogue on gender equality and the empowerment of women in the
SAARC region
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Appendix VII
306
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Appendix VIII Notes from the Theory of Change
Session
During the theory of change workshop in India during the evaluation site visit week, UN-Women India unit
staff working on ending violence against women and girls agreed upon the following reconstructed shortto mid-term results as appropriate for India (to replace the second segment of short- to mid-term results in
the preliminary corporate results model depicted above:

Legislation, policies, and budgets in India adopted and implemented to respond to and prevent
violence against women and girls;

Key constituencies in India (local panchyats, NGO’s, self-help groups, men and boys, and gender
advocates) are mobilized to influence local policies and plans to take action to address ending
violence against women and girls;

National and local level authorities in India enhance number and/or quality of services to women
and girls who survived violence;

Awareness of and public support for ending violence against women and girls in India, from
decision makers, leaders and community members; and

Action is taken to make the infrastructure and design of public spaces safer for women.
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Access to Services
Country Case Study: Morocco
August 2013
Acronymes
ADFM
Association Démocratique des Femmes du Maroc
AGRE
Activités génératrices de revenu
ALCS
Association de la lutte contre le sida
AMVÉF
Association Marocaine de lutte contre la Violence à l’Égard des Femmes
ATMDAS
Association Troisième Millénaire pour le développement de l'action associative au Sud Est
BIT
Bureau international du Travail
BSG
Budgétisation sensible au genre
CCDH
Conseil consultatif des droits de l’homme
CCF
Commission de la condition de la femme
CÉDEF
Convention sur l'élimination de toutes les formes de discrimination à l'égard des femmes
(CEDAW en anglais)
CNDH
Conseil national des droits de l’homme (antérieurement CCDH)
DAW
Division de la promotion de la femme
EHF
Égalité hommes-femmes
FAO
Organisation des Nations Unies pour l'alimentation et l'agriculture
FNUAP
Fonds des Nations Unies pour la population
F-OMD
Fonds pour la réalisation des Objectifs du Millénaire pour le développement
FVVFG
Femmes victimes de violences fondées sur le genre
HCDH
Haut-Commissariat aux droits de l’homme
ID
Identification
IDH
Indice de développement humain
IER
Instance équité et réconciliation
INDH
Initiative nationale pour le développement humain
INSAF
Institut nationale de solidarité avec les femmes en détresse
INSTRAW
Institut international de recherche et de formation pour la promotion de la femme
IPDF
Initiatives pour la protection des droits des femmes
LCVFF
Lutte contre les violences à l’égard des femmes et des filles
MDSFS
Ministère de la Solidarité, de la Femme, de la Famille et du Développement social
NSEVAW
Stratégie nationale de lutte contre la violence à l'égard des femmes
OCHA
Bureau de la coordination des affaires humanitaires
OIM
Organisation internationale pour les migrations
OMD
Objectifs du Millénaire pour le développement
OMS
Organisation mondiale de la Santé
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i
Acronymes
ONG
Organisation non gouvernementale
ONU
Organisation des Nations Unies
ONUDC
Office des Nations Unies contre la drogue et le crime
ONUSIDA
Programme commun des Nations Unies sur le VIH/sida
OSAGI
Bureau de la Conseillère spéciale pour la problématique hommes-femmes et la promotion
de la femme
OSC
Organisation de la société civile
PANDDH
Plan d’action national en matière de démocratie et des droits de l’homme
PNUAD
Plan-cadre des Nations Unies pour l'aide au développement
PNUD
Programme des Nations Unies pour le développement
SIC
Système d’information communale
UNESCO
Organisation des Nations Unies pour l'éducation, la science et la culture
UNGASS
United Nations General Assembly Special Session
UNICEF
Fonds des Nations Unies pour l'enfance
UNIFEM
anciennement Fonds de développement des Nations Unies pour la femme, maintenant
ONU Femmes
VÉF
Violence à l'égard des femmes
VÉFF
Violence à l’égard des femmes et des filles
VIH/sida
Virus d’immunodéficience humaine/syndrome d'immunodéficience acquise
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Table des matières
1.
2.
1.1
1.2
1.3
1.4
2.1
2.2
2.3
Introduction 1
Contexte
1
Méthodologie 1
Limites à l’étude de cas
2
Structure du présent rapport
Contexte
2
3
Contexte régional
3
Contexte marocain 4
Contexte d'ONU Femmes (UNIFEM) 9
3.
Profil du programme d'élimination de la violence à l'égard des femmes au
Maroc appuyé par UNIFEM (2008-2011)
10
3.1
Présentation 10
3.2
Contexte : Programme de l'élimination de la violence à l'égard des femmes
dans la région
10
3.3
Programme de l'élimination de violence à l'égard des femmes au Maroc 10
3.4
Coordination/collaboration entre les agences de l’ONU 12
4.
Conclusions sur les questions d'évaluation stratégique
4.1
4.2
retenus
4.2.1
4.2.2
4.2.3
4.2.4
13
Aperçu
13
Question stratégique n° 1 : Contributions aux résultats et les enseignements
13
Aperçu 13
Pertinence
13
Dimension opérationnelle du mandat d'ONU Femmes 14
Dimension intergouvernementale/normative du mandat d'ONU Femmes
23
4.2.5
Dimension de la coordination entre les agences des Nations Unies du
mandat d'ONU Femmes 24
4.2.6
Pérennité des résultats
25
4.3
Question stratégique n° 2 : Enseignements tirés des forces et faiblesses dans la
gestion de la programmation sur l'élimination de la violence à l’égard des femmes et des
filles
27
4.4
Question stratégique n° 3 : Positionnement stratégique d'ONU Femmes 29
5.
Suggestions 31
6.
Implications pour l'évaluation globale 33
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Figures et tableaux
Tableau 4.1 Facteurs susceptibles d'influencer la pérennité
Tableau 6.1 Implications pour l'évaluation globale
26
33
Annexes
Annexe I. Groupe national de référence
35
Annexe II. Liste des documents consultés 36
Annexe III. Parties prenantes consultées
40
Annexe IV. Méthodologie de l'étude de cas et matrice d'évaluation
42
Annexe V. Modèle de résultats préliminaires 44
Annexe VI. Description des projets appuyés par UNIFEM pendant la période 20082011
45
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iv
1.
Introduction
1.1
Contexte
Ce document fait la synthèse des principales observations et conclusions des travaux menés par ONU
Femmes et son prédécesseur, le Fonds des Nations Unies pour la femme (UNIFEM), sur la prévention de la
violence à l'égard des femmes (VÉF) et sur l’élargissement de l'accès aux services au Maroc, et des
contributions d’ONU Femmes aux résultats. Le rapport d'étude de cas préliminaire a été révisé en fonction
des commentaires d'ONU Femmes et du Groupe national de référence du Maroc.307
L'étude de cas s’inscrit dans l'ensemble de l’évaluation thématique globale sur la contribution d'ONU
Femmes à la prévention de la violence à l'égard des femmes et à l’élargissement de l'accès aux services.
Les buts de cette évaluation globale sont les suivants : i) saisir les résultats et les enseignements clés des
contributions des quatre prédécesseurs308 d' ONU Femmes couvrant les années 2008-2011, période durant
laquelle l’agence s'est engagée à aider les pays à prévenir la violence à l'égard des femmes et des filles et à
étendre l'accès aux services connexes, et ii) analyser la façon dont ONU Femmes se positionne
stratégiquement dans la mise en œuvre de son mandat sur le plan des activités normatives, opérationnelles
et de coordination dans le domaine de la violence à l'égard des femmes.309
La visite sur le terrain au Maroc a été l'une de sept visites programmées dans le cadre de l'évaluation
thématique globale.
Il est important de remarquer que l'étude de cas n'est ni une évaluation du bureau sous-régional d’UNIFEM
au Maroc (maintenant bureau multipays Maghreb) ni une évaluation des efforts du pays pour éliminer la
violence faite à l’égard des femmes et des filles (VÉFF).
1.2
Méthodologie
Les principales sources de données utilisées pour alimenter l'étude de cas étaient : des documents (voir
l'annexe II pour consulter la liste des documents examinés), des entrevues en personne menées au cours de
la visite d'évaluation au Maroc du 3 au 11 décembre 2012, et des entrevues téléphoniques. Au total, 29
intervenants, répertoriés à l'annexe III, ont été consultés dans le cadre de cette étude de cas.
La collecte des données était structurée selon trois questions d'évaluation stratégiques et sous-questions
connexes décrites dans le rapport d'évaluation initial. Voir l’annexe IV.
307
L'annexe I dresse la liste des membres du Groupe national de référence.
308
La Division de la promotion de la femme (DAW), l'Institut international de recherche et de formation pour la promotion de la
femme (INSTRAW), le Fonds de développement des Nations Unies pour la femme (UNIFEM) et le Bureau de la Conseillère
spéciale pour la parité entre les sexes et la promotion de la femme (OSAGI).
309
Pour en connaître davantage sur les objectifs et la méthodologie d'évaluation, veuillez consulter le rapport initial d'évaluation
(novembre 2012).
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1.3
Limites à l’étude de cas
Les limites de l'étude de cas du Maroc sont relatives à la collecte et à l’analyse de données. Pour des raisons
budgétaires, les entretiens avec les parties prenantes d’UNIFEM dans le pays ont été menés sur une période
de seulement six jours, dont une demi-journée a été consacrée à la présentation et à la discussion des
observations qui sont ressorties des entrevues réalisées au Maroc avec le Groupe national de référence ainsi
qu’à la discussion, avec ce même groupe, sur une théorie du changement du programme d’UNIFEM relatif
à l’élimination de la VÉFF. Par conséquent, la collecte de données n’a pas permis de couvrir la totalité de la
programmation d’UNIFEM au Maroc relative à la VÉFF pour la période 2008-2011. De plus, compte tenu
du budget disponible, l’examen des documents disponibles pour chaque projet a été fait de manière
sélective et s’est concentré sur les informations relatives aux résultats atteints.
1.4
Structure du présent rapport
Ce rapport comprend six sections. Après l'introduction, la section 2 résume les contextes du travail sur la
VÉFF effectué par UNIFEM de 2008 à 2011 ; la section 3 présente un profil des programmes gérés ou
appuyés par UNIFEM de 2008 à2011. La section 4 présente les résultats de l'évaluation sur trois questions
d'évaluation stratégique. La section 5 propose des suggestions et des recommandations à l’intention d’ONU
Femmes, tirées de l'étude de cas du Maroc. La sixième et dernière section résume les observations faites en
lien avec l'objectif global de l'évaluation, soit l’élaboration d’une théorie du changement pour le travail
d'ONU Femmes sur l’élimination de la VÉFF.
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2.
Contexte
2.1
Contexte régional
Le terme Maghreb désigne les pays du soleil couchant – l'Occident nord-africain – par opposition au
Machreq («le Levant»), pays du soleil levant – l'Orient arabe ou le Moyen orient. Dans son acception
traditionnelle, il comprend le Maroc, l'Algérie et la Tunisie, trois anciens pays berbères, islamisés et
arabisés. En 1989 fut signé le traité portant création de l'Union du Maghreb arabe (UMA), qui réunit, outre
ces pays, la Libye et la Mauritanie.310
Les pays du Maghreb ont connu des parcours historiques et politiques différents. Cependant, ils font face à
une multitude de problèmes pour la plupart communs aux cinq nations, notamment la prédominance de
l'économie de rente, la dépendance alimentaire, le chômage des jeunes, l'analphabétisme et l'extrême
précarité d'une bonne partie de la population, les disparités territoriales, la discrimination à l'égard des
femmes ainsi que les défis de la transition démocratique, de l'instauration de l'État de droit et de la lutte
contre le terrorisme. Les taux de pauvreté et de richesse varient selon les pays, le Maroc, l'Algérie, la Libye
et la Tunisie sont considérés par la Banque Mondiale comme des pays à revenu moyen supérieur, alors que
la Mauritanie est considérée comme un pays à faible revenu. Le taux de pauvreté est plus élevé en Algérie,
où 22,6 pour cent de la population vit en dessous du seuil de pauvreté, suivie par la Mauritanie avec 23,4
pour cent, le Maroc avec 15 pour cent, et la Tunisie avec 3,4 pour cent. Les données sur les taux de
pauvreté n'étaient pas disponibles pour la Libye.311
Violence à l’égard des femmes et des filles
L'une des manifestations flagrantes de la discrimination à l'égard des femmes est le phénomène de la
violence sexiste qui caractérise, à des degrés différents, les cinq pays du Maghreb.
Au Maroc, l’enquête nationale de la prévalence de la violence à l’égard des femmes,312 réalisée en 2009 par
le HCP,313 indique que 24 pour cent des femmes subissent des violences physiques ou sexuelles. Si l’on
tient compte de l’ensemble de toutes les formes de violences, ce pourcentage s’élève alors à de 62,8 pour
cent. Au sein de ménages marocains plus d’une femme sur deux est victime de violence, et le taux de
prévalence des violences conjugales est de 55 pour cent. Notons cependant que le cadre juridique marocain
s'est nettement amélioré grâce au Code de la famille de 2004, aux changements introduits dans le code
pénal et dans le code du travail (pénalisation de l'harcèlement sexuel), et à la nouvelle Constitution adoptée
en 2011, qui représente une avancée prometteuse en matière de protection des droits des femmes.
En Tunisie,314 selon l’Enquête nationale sur la violence à l’égard des femmes, réalisée en 2011, 15 pour
cent des femmes sont victimes de violences (physiques ou sexuelles), et 34 pour cent le sont si l’on prend
également en compte la violence psychologique et économique. En Tunisie, le cadre juridique permet aux
femmes de bénéficier d'une meilleure protection contre la violence.315
310
Source : http://www.larousse.fr/encyclopedie/autre-region/Maghreb/131068
311
La Banque mondiale 2011: http://data.worldbank.org/country/
Haut Commissariat au Plan. La violence à l’égard des femmes au Maroc 2009. Rapport de synthèse.
312
313
Haut Commissariat au Plan : institution officielle relevant de la primature sous l’autorité d’un haut commissaire au plan nommé,
avec rang de Ministre, par Sa Majesté le Roi. Le HCP est une institution jouissant d’une indépendance institutionnelle et
intellectuelle dans l’établissement de ses programmes et la conduite de ses travaux d’enquêtes et d’études. Il est le principal
producteur de l’information statistique économique, démographique et sociale, et chargé de l’établissement des comptes de la
nation et élabore des études dans les domaines de la conjoncture, du cadrage macroéconomique et de la prospective.
314
Onfp, Enquête nationale sur la violence à l’égard des femmes en Tunisie. Décembre 2010. Accessible au :
http://sgdatabase.unwomen.org/uploads/Enquete%20sur%20VAW%20-%202010.pdf
315
Commission économique pour l’Afrique. African Women’s Report 2009. Disponible ici :
http://www.uneca.org/eca_resources/publications/books/awr/AWR09_FIN.pdf
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En Algérie,316 selon la première enquête sur la prévalence de la violence à l’égard des femmes réalisée en
2006, ce sont 9,4 pour cent des Algériennes qui subissent des violences physiques répétées et 31,4 pour
cent qui subissent des pressions psychologiques répétées. Les femmes algériennes ont beaucoup souffert
pendant la guerre civile qui a sévi pendant 15 ans dans leur pays; on soupçonne que le viol, la torture et les
meurtres commis par des groupes armés ont été pratique courante.317 Le cadre juridique algérien a connu
des améliorations significatives, et la représentativité politique de la femme algérienne s'est nettement
améliorée. Néanmoins, la violence contre les femmes, y compris la violence conjugale, continue d'être un
problème très répandu, alors que la législation nationale ne contient pas de dispositions spécifiques
interdisant et criminalisant la violence domestique, y compris le viol conjugal.318
Les femmes en Libye jouissent de peu de protection juridique contre la violence : selon les plus récentes
observations du Comité pour l’élimination de la discrimination à l’égard des femmes, en 2009, la Lybie ne
s’était pas encore dotée d’une législation complète relative à la protection des femmes contre la violence,
notamment la violence dans la famille. De plus, le Comité notait, avec préoccupation, la pratique
généralisée qui consiste à encourager les mariages entre l’auteur et la victime d’un viol afin de les protéger
de l’opprobre et de la marginalisation et d’éviter toute ambiguïté quant à la filiation si la victime est
enceinte (ce qui débouche sur l’impunité de l’auteur du viol), ainsi que le maintien de la loi no 70 de 1973
qui érige en infraction pénale les relations sexuelles hors mariage.319
Enfin, en Mauritanie, l'inexécution de la législation, ainsi que l'absence de politiques et de programmes
pour combattre la violence contre les femmes (y compris la violence familiale, les mutilations génitales
féminines, le viol, notamment conjugal, toutes les formes d'abus sexuel des femmes, et le gavage des
fillettes) représentent d’importants obstacles pour les femmes à la pleine jouissance de leurs droits.320
2.2
Contexte marocain
Selon les données de la Banque Mondiale le Maroc est un pays à revenu intermédiaire se situant dans la
tranche inférieure de cette catégorie.321 Depuis les années 1980, l'économie marocaine a connu une
croissance constante, caractérisée par un taux faible d’inflation et par une dette publique généralement à la
baisse. Cependant, la pauvreté persiste. Selon la Banque Mondiale, le taux de chômage à l’échelle nationale
est de 9,4 pour cent et atteint 21,9 pour cent chez les jeunes. Neuf pour cent de la population vivent
316
Centre de recherche en anthropologie sociale et culturelle sous la responsabilité du Ministère Délégué
Chargé de la Famille et de la Condition Féminine, Première enquête spécifique de prévalence de la violence à l’égard des femmes
en Algérie, 2006
317
Institution sociale et l'indice de genre 2012 sur l'Algérie : http://genderindex.org/country/algeria
318
UN Committee on Economic, Social and Cultural Rights (CESCR), Consideration of reports submitted by States parties under
articles 16 and 17 of the Covenant : concluding observations of the Committee on Economic, Social and Cultural Rights : Algeria,
7 June 2010, E/C.12/DZA/CO/4, disponible ici: http://www.unhcr.org/refworld/docid/4c1739922.html [accédé le 27 février 2013]
319
Comité pour l’élimination de la discrimination à l’égard des femmes. Quarante-troisième session 19 janvier-6 février 2009.
Observations finales du Comité pour l’élimination de la discrimination à l’égard des femmes : Jamahiriya arabe libyenne.
Disponible ici : http://daccess-dds-ny.un.org/doc/UNDOC/GEN/N09/227/85/PDF/N0922785.pdf?OpenElement
320
Comité pour l’élimination de la discrimination à l’égard des femmes. Trente-huitième session 14 mai-1er juin 2007.
Observations finales du Comité pour l’élimination de la discrimination à l’égard des femmes : Mauritanie. Disponible ici :
http://daccess-dds-ny.un.org/doc/UNDOC/GEN/N07/375/85/PDF/N0737585.pdf?OpenElement
321
Banque mondiale 2011: http://donnees.banquemondiale.org/pays/maroc
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actuellement en dessous du seuil national de pauvreté.322 Selon l'indice de développement humain (IDH)323,
en 2011, le Maroc se situait en 130e position sur 187 pays, avec un score de 0,582.324
Depuis 1999, sous l'égide du Roi Mohammed VI, et grâce au plaidoyer continu des organisations de la
société civile (OSC), en particulier des organisations de femmes, le pays a connu d'importantes avancées de
ses cadres normatif, institutionnel et législatif liés à la protection et à la promotion des droits de la
personne. Le pays a également vécu des processus de réformes importantes sur les plans politique et social.
Sur le plan politique le Maroc a entamé, depuis les années 2000, un processus de réconciliation et de
réformes politiques progressives après les années de terreur pendant lesquelles les forces de sécurité de
l'État (armée et police) pratiquaient des violations flagrantes des droits de la personne (disparitions,
détentions arbitraires et actes de torture).325 L'Instance Équité et Réconciliation (IER), établie en 2002, a été
mandatée d’enquêter sur les violations des droits de l’Homme commises entre 1956 et 1999, d’en faire
l’évaluation et l’arbitrage, et de présenter des recommandations et de propositions326 appropriées.
Consciente de l'ampleur de la violence perpétrée à l'encontre des femmes durant les années de plomb, l'IER
a recommandé,327 entre autres choses, la nécessité d’intégrer l’égalité hommes-femmes dans les
programmes de justice transitionnelle. Sous la direction du Conseil national des droits de l’Homme
(CNDH), le pays est actuellement en train d'intégrer cette approche dans le processus de réconciliation.
Sur le plan social, afin d'accélérer les avancées dans l’atteinte des Objectifs du Millénaire pour le
développement (OMD), de promouvoir et d'améliorer les droits de l’Homme (y compris des efforts
particuliers pour renforcer l'égalité des femmes et des jeunes filles), le Roi a lancé, en 2005, l'Initiative
nationale pour le Développement Humain (INDH). L’INDH se veut une stratégie de développement axée
sur le respect des droits économiques, sociaux et culturels avec une emphase sur le développement des
femmes et la réduction de la pauvreté au niveau local.
Sur le plan juridique, au cours de la dernière décennie, les réalisations les plus importantes des OSC et du
mouvement des femmes en faveur d'une plus grande reconnaissance et de la protection des droits des
femmes et l'égalité hommes-femmes sont les suivantes :

322
la révision du Code de la famille (Moudawana) en 2004 : fondé sur le principe de l’égalité et la
coresponsabilité, le Code a introduit : l’abolition de l’obligation de la tutelle, l’égalité pour l’âge
minimum du mariage (maintenant fixé à 18 ans ), le divorce judiciaire sous contrôle de la justice, le
droit pour les femmes d’accéder désormais automatiquement au divorce par « la discorde », et des
mesures provisoires en cas de litige entre les époux pour la protection de la femme et des enfants
en cas de litige.328 Afin de garantir la mise en œuvre du Code de la famille, des mesures
d’accompagnement ont été mises en place, y compris une formation et un guide pour les juges, la
création des sections de la famille dans les tribunaux, et l’accès des femmes à la fonction de juges
Ibid.
323
L'IDH évalue progrès à long terme de trois indicateurs principaux: vie longue et saine, accès à la connaissance, et niveau de vie
décent. En 2011, l'espérance de vie au Maroc s'établit à 72,2 ans, tandis que la moyenne de la population en matière de scolarité
atteint 4,4 ans, Voir: http://hdr.undp.org/en/reports/global/hdr2011/
324
PNUD, Rapport sur le développement humain 2011, voir: http://hdr.undp.org/en/reports/global/hdr2011/
325
Youssef Belal. Gender and and transitional justice: modelling the Moroccan experience. Octobre 2009; page 7.
326
Site web de l’Instance Équité et Réconciliation. Disponible ici : http://www.ier.ma/article.php3?id_article=147
327
Youssef Belal. Gender and and transitional justice: modelling the Moroccan experience. Octobre 2009; page 30.
328
Mise en œuvre de la CEDAW 3ème et 4ème rapports périodiques. Présenté par Madame Nouzha Skalli Ministre du
Développement Social, de la famille et de la Solidarité Genève Jeudi 24 Janvier 2008. Disponible ici :
www2.ohchr.org/english/bodies/cedaw/docs/statement/40Morocco_fr.ppt
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de la famille;329 et la création (en 2011) d’un fonds de solidarité familiale destiné aux femmes
divorcées nécessiteuses.330

la réforme du Code du travail (2004), qui reconnait l’égalité entre les femmes et les hommes en
matière d’accès au travail et a introduit la notion de l’harcèlement sexuel;331

la réforme du Code de la
nationalité (2007), qui donne
désormais aux femmes et aux
hommes des droits égaux dans la
transmission de leur nationalité à
leurs enfants;334


329
les réformes au Code pénal et au
Code de procédure pénale, pour
l’élimination de mesures
discriminatoires contre les femmes
et de meilleures garanties de
protection des droits de
l’Homme;335
Les avancées les plus récentes du Maroc en
termes d’engagements internationaux332
- Levée des réserves émises sur le paragraphe ‘2’ de
l’article ‘9’ et sur l’article ‘16’ de la Convention sur
l’élimination de toutes les formes de discrimination à
l’égard des femmes (CÉDEF) et le dépôt des
instruments de levée de réserves auprès du
Secrétariat général des Nations Unies, le 7 avril
2011.333
- Annonce par le gouvernement de l’adhésion du
Maroc au protocole optionnel de la CÉDEF.
- Adhésion au Protocole additionnel à la Convention
des Nations Unies contre la criminalité
transnationale organisée visant à prévenir, réprimer
et punir la traite des personnes, en particulier des
femmes et des enfants, le 25 avril 2011.
l’adoption d’une nouvelle
Constitution en 2011, qui, entre
autres choses, consacre l'égalité et la
parité hommes-femmes; reconnaît
pour la première fois la diversité de l'identité marocaine; décline un certain nombre de principes
relatifs aux libertés, aux droits fondamentaux et aux obligations et constitue ainsi une avancée vers
la citoyenneté effective; consacre l'égalité des hommes et les femmes dans les droits civils,
politiques, économiques, culturels et environnementaux et introduit la notion d’effectivité des
droits et des libertés; préconise des mesures d’action affirmative ainsi que des mécanismes dont «
l’Autorité pour la parité et la lutte contre toute forme de discrimination »; reconnaît la suprématie
des conventions internationales ratifiées par le Maroc sur les lois nationales et l’obligation
d’harmoniser celles-ci en conséquence. Comme le notent les répondants, ces dispositions
constitutionnelles marquent un saut qualitatif en matière de droits des femmes, mais la déclinaison
de l'esprit de ces dispositions dans les lois organiques prévues par la constitution exigera beaucoup
de savoir-faire et de vigilance pour consolider les acquis constitutionnels.
Ibid.
330
Conseil des droits de l’homme. Groupe de travail sur l’Examen périodique universel. Treizième session. Genève, 21 mai–4 juin
2011. Rapport national présenté conformément au paragraphe 5 de l’annexe à la résolution 16/21 du Conseil des droits de l’homme.
331
Ibid.
332
Conseil des droits de l’homme. Groupe de travail sur l’Examen périodique universel. Treizième session. Genève, 21 mai–4 juin
2011. Rapport national présenté conformément au paragraphe 5 de l’annexe à la résolution 16/21 du Conseil des droits de
l’homme; voir aussi : Association Démocratique des Femmes du Maroc. Rapport des ONG de défense des droits des femmes au
Maroc au titre du 2e Examen Périodique Universel (EPU). Soumis au Haut Commissariat des droits de l’Homme.
333
Selon le rapport de l’ADMF préparé au titre du 2e Examen Périodique Universel, la déclaration maintenue à propos de l’article
‘2’ de la CÉDEF est incompatible avec l’objet et le but de la Convention et celle maintenue à propos du paragraphe ‘4’ de l’article
‘15’ n’a plus lieu d’être, car la législation nationale accorde ce droit à la femme.
334
Ibid.
335
Ibid.
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6
Cependant, plusieurs lacunes demeurent dans le cadre juridique national, qui limitent les femmes dans
l’exercice de leurs droits politiques, sociaux, économiques, et culturels tels que prévus dans les conventions
et traités internationaux relatifs aux droits de l’Homme.336
La violence à l’égard des femmes et des filles
Au Maroc, les efforts déployés pour éliminer la violence à l’égard des femmes et des filles (VÉFF) ont été
menés (conjointement ou de manière concertée) par les OSC, notamment des organisations des droits des
femmes, les différents gouvernements qui se sont succédé au Maroc, et les agences des Nations Unies.
Grâce à ces efforts conjoints, depuis les années 90 :

plusieurs services337 ont été mis en place pour offrir une réponse et protection adéquates à la
violence à l’égard des femmes comme, par exemple : la mise en place d’un numéro économique au
profit des femmes victimes de violence; l’extension des centres d’écoute, de soutien psychologique
et d’orientation juridique; la mise en place de cellules ou unités de la Justice, de la Santé, de la
Sûreté nationale et de la Gendarmerie royale pour accueillir les femmes victimes de violence (y
compris les violences juridiques telles que stipulées dans le domaine du code de la famille); la
création des sections de la famille au sein des tribunaux de première instance; et l’ouverture de
services d’accueil aux femmes victimes de violence dans les centres hospitaliers universitaires de
Rabat et de Casablanca;

de campagnes de sensibilisation à l’égalité, à la lutte contre la violence, à la promotion des droits
de l’Homme ont été réalisées, y compris des campagnes nationales pour la lutte contre la violence à
l’égard des femmes et des filles, dont la première a été menée en 1998. De surcroît, selon
l’information fournie par le Bureau multipays Maghreb d’UNIFEM, le Maroc s’est inscrit à la
campagne UNiTE. En effet, la campagne nationale de lutte contre la violence à l’égard des femmes
de 2010 a été organisée dans ce cadre et plusieurs activités de sensibilisation aux niveaux national
et local ont été organisées (dans six régions), dont la production d’un spot publicitaire et d’une
capsule radio sous le thème « Messieurs : la lutte contre les violences à l’égard des femmes est
aussi votre affaire ». Au Maroc, 21 ministres ont déjà signé l’appel « Dites NON » à la violence à
l'égard des femmes;338

un processus de révision du cadre juridique a été entamé aboutissant à plusieurs réformes, dont
celles mentionnées dans les paragraphes précédents. De plus, un projet de loi sur les violences
domestiques a été élaboré en 2009 par le Ministère du Développement social, de la Famille et de la
Solidarité et la réforme du Code pénal, lancée depuis deux ans, est en cours;

des stratégies et programmes nationaux de lutte contre la VÉFF ont été adoptés et exécutés (ou
sont en phase d’exécution), tels que la Stratégie Nationale de lutte contre la Violence à l’égard des
femmes (approuvée en 2002) et son plan opérationnel (approuvé en 2004); et le programme
336
Association Démocratique des Femmes du Maroc. Rapport des ONG de défense des droits des femmes au Maroc au titre du 2e
Examen Périodique Universel (EPU). Soumis au Haut Commissariat des droits de l’Homme. Disponible ici :
http://lib.ohchr.org/HRBodies/UPR/Documents/session13/MA/ADFM_UPR_MAR_S13_2012_AssociationDemocratiquedesFem
mesduMaroc_F.pdf
337
Mise en œuvre de la CEDAW 3ème et 4ème rapports périodiques. Présenté par Madame Nouzha Skalli Ministre du
Développement Social, de la famille et de la Solidarité Genève Jeudi 24 Janvier 2008. Disponible ici :
www2.ohchr.org/english/bodies/cedaw/docs/statement/40Morocco_fr.ppt; Réseau National des Centres d’écoute des Femmes
Victimes de Violences. Les violences fondées sur le genre au Maroc: Mariage des mineures et partage des biens acquis pendant le
mariage : lacunes du texte et difficultés de l’application. Mai, 2012; Promouvoir l’égalité entre les hommes et les femmes dans la
région euro-méditerranéenne (2008-2011) -Programme financé par l’Union Européenne. « Rapport National d’Analyse de la
Situation: Droits humains des femmes et Égalité hommes-femmes – Maroc ».
338
Source: http://saynotoviolence.org/sites/default/files/FR_Who_Says_No_Govs.pdf
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multisectoriel « Tamkine » de lutte contre les violences fondées sur le genre (2008-2012), ayant le
but de faire converger les actions et d’institutionnaliser la question des violences;

le renforcement des capacités des prestataires des services et autres acteurs œuvrant dans le
domaine est en cours, à travers, par exemple, la formation continue des magistrats afin qu’ils soient
qualifiés pour la mise en application des dispositions du code de la famille selon l’approche
«genre»; le développement de supports de sensibilisation audiovisuels, de films et de
documentaires; et le développement de brochures d’information/sensibilisation pour faciliter la
vulgarisation des procédures et modalités requises portant sur les différents types d’affaires traitées
par les sections de la justice de la famille dans le cadre de l’application du Code de la famille; et

des nouvelles connaissances sur le phénomène de la VÉFF ont été générées, à travers la collecte
de données, recherches, et production de rapports menés par le réseau national des Centres
d’écoute des femmes victimes de violences (réseau ANARUZ), et la réalisation en 2009, par le
Haut Commissariat au Plan, de l’enquête nationale sur la prévalence de la violence à l’égard des
femmes.
Force est de constater que, malgré ces efforts, la prévalence de la violence à l’égard des femmes et des
filles reste encore très élevée, avec 62,8 pour cent des femmes victimes de violence.339 Les entrevues
menées et les documents consultés340 lient ce taux alarmant au contexte socioculturel et aux mentalités qui
changent très lentement, tolèrent encore la VÉFF et acceptent difficilement les principes d’égalité hommesfemmes ou considèrent la VÉFF comme faisant partie de la sphère privée des familles. Par ailleurs, les
carences en ressources disponibles et les modestes capacités du gouvernement, des prestataires de services,
et des centres d’écoute ne permettent pas d’apporter une réponse efficace au problème. Ce problème est
exacerbé par le manque d’accès à l’information dont souffrent les femmes (surtout en milieu rural), par
l’insuffisance du nombre de structures de soutien, notamment de tribunaux de la famille ou de réseau de
soutien aux femmes victimes de violence, par le manque de sensibilisation et d’information à la culture de
l’égalité, et par le rôle insuffisant joué par les médias en matière de lutte contre les stéréotypes.
L’Association Démocratique des Femmes du Maroc, en concertation avec 21 ONG et réseaux marocains
œuvrant dans le domaine des droits humains et des droits des femmes, ont identifié341 les défis et lacunes
les plus importants pour contrer cette problématique, notamment la législation pénale (avec des
dispositions qui restent discriminatoires), l’accueil, l'orientation et l'assistance juridique aux victimes
(l’accès des femmes les plus pauvres et les plus vulnérables aux violences et violations de leurs droits aux
institutions chargées de leur protection (hôpitaux, police, gendarmerie, tribunaux,…) restant difficile, voire
parfois impossible) ; et la cohérence et l’efficience de l’action gouvernementale (affaiblie par
l’éparpillement des initiatives et des interventions, donnant lieu ainsi à une faible capitalisation de
connaissances, des acquis et des moyens humains et financiers alloués à la lutte contre les violences).
339
Haut Commissariat au Plan. La violence à l’égard des femmes au Maroc 2009. Rapport de synthèse. Page 91.
340
Voir, par exemple: Comité pour l’élimination de la discrimination à l’égard des femmes. Quarantième session 14 janvier-1er
février 2008. Observations finales du Comité pour l’élimination de la discrimination à l’égard des femmes : Maroc. Disponible ici :
http://www2.ohchr.org/english/bodies/cedaw/docs/CEDAW.C.MAR.CO.4_fr.pdf; Mise en œuvre de la CEDAW 3ème et 4ème
rapports périodiques. Présenté par Madame Nouzha Skalli Ministre du Développement Social, de la famille et de la Solidarité
Genève Jeudi 24 Janvier 2008. Disponible ici : www2.ohchr.org/english/bodies/cedaw/docs/statement/40Morocco_fr.ppt;
Promouvoir l’égalité entre les hommes et les femmes dans la région euro-méditerranéenne (2008-2011) -Programme financé par
l’Union Européenne. « Rapport National d’Analyse de la Situation: Droits humains des femmes et Égalité hommes-femmes –
Maroc »
341
Association Démocratique des Femmes du Maroc. Rapport des ONG de défense des droits des femmes au Maroc au titre du 2e
Examen Périodique Universel (EPU). Soumis au Haut Commissariat des droits de l’Homme. Disponible ici :
http://lib.ohchr.org/HRBodies/UPR/Documents/session13/MA/ADFM_UPR_MAR_S13_2012_AssociationDemocratiquedesFem
mesduMaroc_F.pdf
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2.3
Contexte d'ONU Femmes (UNIFEM)
Pendant la période 2008-2011, le Bureau sous-régional de l’Afrique du Nord desservait le Maroc, l’Algérie,
la Tunisie, la Libye et la Mauritanie.342 Depuis l’établissement de la nouvelle structure régionale décidée en
2012, le bureau (maintenant appelé « bureau multipays Maghreb ») et dirigé par madame Leila Rhiwi,
dessert le Maroc, l'Algérie, et la Tunisie, mais, dans ces deux derniers pays, seuls un conseiller principal
pour la problématique hommes-femmes ou un administrateur de projet y assurent une présence. À l’instar
de l’Algérie et de la Tunisie, ONU Femmes est également représentée en Lybie et en Mauritanie soit par un
conseiller principal pour la problématique hommes-femmes soit par un administrateur de projet.343
Cependant, selon la nouvelle structure régionale, la Lybie et la Mauritanie ne font pas partie du bureau
multipays Maghreb; elles dépendent, respectivement, du Centre régional pour les États arabes, situé au
Caire, en Égypte, et du bureau pour l’Afrique de l’ouest, situé au Sénégal.
Le bureau multipays Maghreb est appuyé par le Centre régional pour les États arabes.
342
Source: http://www.unifem.org/about/contact.html
343
Conseil d'administration de l'Entité des Nations Unies pour l'égalité des sexes et l'autonomisation des femmes, Structure
régionale : incidences administratives, budgétaires et financières et plan de mise en œuvre, 18 septembre 2012.
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9
3.
Profil du programme d'élimination de la
violence à l'égard des femmes au Maroc
a ppu yé pa r UNI FEM (2 0 08 - 2 0 11 )
3.1
Présentation
Cette partie donne un aperçu des travaux sur la VÉFF dans la sous-région de l'Afrique du Nord au cours de
la période 2008-2011 qu’UNIFEM a dirigés ou pour lesquels elle a fourni de l’aide. Ces travaux portent sur
des initiatives financées et gérées par UNIFEM, ainsi que sur des projets administrativement soutenus par
UNIFEM et financés par le Fonds d'affectation spéciale des Nations Unies pour l'élimination de la violence
à l'égard des femmes.
3.2
Contexte : Programme de l'élimination de la violence
à l'égard des femmes dans la région
UNIFEM a appuyé les efforts contre la VÉFF de trois façons 1) par un appui direct à des projets 2) par
l’octroi de financements de base, et 3) par le Fonds d'affectation spéciale des Nations Unies pour éliminer
la violence à l'égard des femmes, administré par UNIFEM. Selon les données de l’analyse du portfolio des
interventions d’UNIFEM, analyse réalisée pendant la phase de démarrage de l’évaluation globale, au total
24 interventions au niveau régional ont eu lieu avec le soutien d'UNIFEM (financement de base et appui
direct), grâce à un investissement global de 30 503 468 $. Le Fonds d'affectation spéciale des Nations
Unies pour l'élimination de la violence à l'égard des femmes a permis de financer six interventions avec un
investissement total de 3 884 052 $. Au niveau sous-régional, le Maroc est le pays qui a le plus bénéficié de
l’appui d'UNIFEM.
3.3
Programme de l'élimination de violence à l'égard des
femmes au Maroc
Entre 2008 et 2011, de tous les pays de la sous-région de l'Afrique du Nord, le Maroc a reçu le soutien le
plus important d'UNIFEM. UNIFEM a octroyé un appui direct à 4 interventions et financé, à travers un
financement de base, 14 interventions. Le Fonds d’affectation spéciale des Nations Unies pour l'élimination
de la violence à l’égard des femmes a financé deux interventions au Maroc, dont l’une a été gérée par le
Bureau régional pour les États Arabes d’UNIFEM (basée à Amman en Jordanie). La liste de ces projets et
une courte description de ceux-ci sont présentées à l’annexe VI.
Comme les entrevues et l’examen de documents le révèlent, au Maroc, le travail d’UNIFEM pour
l’élimination de la VÉFF a été conçu, d’une part, comme un enjeu stratégique spécifique de l’action
d’UNIFEM (par exemple, à travers son appui au Réseau national des Centres d’écoute des femmes
victimes de violences (réseau ANARUZ) pour son renforcement à travers l’expansion et le réseautage des
centres) et, d’autre part, comme une dimension intégrée aux autres enjeux stratégiques de son intervention,
notamment celui de la gouvernance démocratique (par exemple, à travers l’appui au Conseil national des
droits de l’homme dans le processus de justice transitionnelle, aux Sections de la famille des tribunaux de
première instance pour la mise en œuvre du Code de la famille, ou aux organisations de la société civile
(OSC) pour la réforme du Code pénal) et celui de l’autonomisation économique (par exemple, à travers
l’appui aux organisations non gouvernementales (ONG) pour le plaidoyer en faveur de l’égalité
successorale et au Ministère de la Justice pour la création d’un fonds d’entraide familiale pour les femmes
pauvres divorcées dont l’ex-conjoint ne remplit pas ses obligations).
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Le travail d’UNIFEM au Maroc a visé :

le renforcement des capacités institutionnelles (au niveau du gouvernement central et des
gouvernements provinciaux et municipaux) à mettre en œuvre la législation et les plans d’action
relatifs à l’égalité hommes-femmes et au combat contre la VÉFF à travers, par exemple, le soutien
à des projets pilotes (comme celui concernant le travail des travailleurs sociaux dans les sections de
famille des tribunaux de première instance), à l’élaboration d’outils (brochures, guides, etc.) pour
les prestataires de services aux femmes survivantes de violence, à la réalisation d’enquêtes de
satisfaction de l’offre des services qui s’adressent aussi à ces femmes, ou encore au développement
de systèmes pour la collecte de données qui tiennent compte de la distinction hommes-femmes
avec des indicateurs spécifiques sur la VÉFF;

le renforcement des capacités des ONG pour plaider en faveur de réformes constitutionnelles et
législatives à travers, par exemple, le soutien à l’analyse du Code pénal dans une perspective
hommes-femmes, le réseautage des ONG et la formation de coalitions pour le plaidoyer,
l’élaboration d’outils de communication pour le plaidoyer et le renforcement organisationnel du
réseau ANARUZ;

le renforcement des capacités des ONG à offrir des services aux femmes survivantes de violence en
soutenant, par exemple, la formation du personnel des centres d’écoute des femmes victimes de
violences, membres du réseau ANARUZ;

la promotion de l’autonomisation psychosociale et économique des femmes survivantes de
violence en outillant, par exemple, des femmes survivantes de violence pour la recherche et la
création d’activités génératrices de revenu, en créant un fonds de solidarité pour les activités
génératrices de revenu, en réalisant une étude sur les activités génératrices de revenu, ou encore en
formant, en sensibilisant et en informant des femmes sur leur droits;

la promotion de l’autonomisation politique des femmes à travers, par exemple, le soutien au
processus de justice transitionnelle et de réconciliation et à la réalisation de formations sur le
leadership des femmes vivant dans des sites ravagés par les violences politiques pendant les années
de plomb;

une meilleure connaissance de l’étendue et des formes de violence à l’égard des femmes au Maroc,
à travers l’appui à la réalisation d’une enquête sur la prévalence de la VÉF à l’échelle nationale,
ainsi qu’aux rapports des centres d’écoutes des ONG pour les femmes survivantes de violence sur
des problématiques telles que le mariage des mineures; et

la sensibilisation de l’opinion publique et des décideurs politiques sur le phénomène de la violence
à l’égard des femmes et des filles à travers les activités susmentionnées relatives au soutien aux
ONG pour le plaidoyer, l’appui à la réalisation d’une enquête sur la prévalence de la VFF à
l’échelle nationale, ainsi qu’à travers le soutien à des ONG dans la réalisation de campagnes de
sensibilisation sur des formes spécifiques de VÉFF dans des régions reculées du pays.
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3.4
Coordination/collaboration entre les agences de
l’ONU
Plusieurs agences de l'ONU sont présentes au Maroc. Le travail de ces agences est guidé, depuis 2002, par
le Plan-cadre des Nations Unies pour l'aide au développement (PNUAD) pour le Maroc. Dans le PNUAD
couvrant la période 2007-2011,344 la question de la VÉFF était traitée principalement en lien avec le résultat
D : « Progrès significatifs atteints en matière d’égalité hommes-femmes, de protection des droits des
femmes et des filles et de participation à la vie publique, économique, sociale et culturelle » et en lien avec
le résultat C : « Les enfants, les jeunes et les populations vulnérables ont un meilleur accès aux services
sociaux et participent au processus de développement ». L’action des agences des Nations Unies, et plus
particulièrement d’UNIFEM, du Fonds des Nations Unies pour la population (FNUAP), du Programme des
Nations Unies pour le Développement (PNUD), du Fonds des Nations Unies pour l'enfance (UNICEF), du
Haut-Commissariat aux droits de l’homme (HCDH), de l’ Organisation des Nations Unies pour l'éducation,
la science et la culture (UNESCO), du Bureau international du Travail (BIT), du Programme commun des
Nations Unies sur le VIH/sida (ONUSIDA), de l’Organisation mondiale de la santé (OMS), de
l’Organisation des Nations Unies pour l'alimentation et l'agriculture (FAO), et de l'Office des Nations
Unies contre la drogue et le crime (ONUDC), visait le renforcement des capacités :

des institutions et autres acteurs clés à prévenir et à lutter contre la VÉFF, mais aussi à suivre, à
réviser et à faire appliquer la législation relative à toutes les formes de violence, d’abus et
d’exploitation à l’égard des enfants, des adolescents et des femmes;

des différents acteurs à prévenir et à lutter contre la VÉFF; et

des décideurs et des détenteurs de droits à assurer l'application de la loi, conformément aux droits
humains des femmes.
Au cours de la période 2008-2012, la collaboration la plus importante entre les agences des Nations Unies
dans le pays s’est organisée autour de la mise en œuvre du « Programme multisectoriel conjoint et soutenu
par le Fonds de l'OMD de Lutte contre la violence sexiste par l'autonomisation des femmes et des filles »,
également connu sous le nom de programme « Tamkine », financé par le Fonds pour la réalisation des
Objectifs du Millénaire pour le développement (F-OMD). Avec un budget de 8 400 000 $, le Programme
commun a été conçu pour prévenir toute forme de violence sexiste en établissant des liens entre la situation
de pauvreté des femmes et des filles au Maroc et leur vulnérabilité à des situations de violence. Un total de
huit agences onusiennes345 (dont UNIFEM assurait la coordination avec, du côté du gouvernement, le
Ministère de la Solidarité, de la Femme, de la Famille et du Développement social), 13 départements
ministériels, et 60 OSC ont travaillé ensemble entre les mois de mai 2008 et juin 2012 à la promotion des
droits fondamentaux des femmes et des filles. Le programme Tamkine s'inscrivait dans le cadre de
l'Initiative nationale pour le développement humain (INDH), une stratégie de développement axée sur le
respect des droits économiques, sociaux et culturels avec une emphase mise sur le développement des
femmes et la réduction de la pauvreté au niveau local, lancée en 2005.
344
345
Plan-cadre des Nations Unies au Maroc 2007-2011. Bilan commun de pays. Mars 2006.
Les agences des Nations Unies sont l'ONUSIDA, ONU Femmes, la FAO, l'OIT, l'UNICEF, le HCR, l'UNESCO et le FNUAP.
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Conclusions sur les questions d'évaluation
stratégique
4.
4.1
Aperçu
Cette section présente les résultats des trois questions d'évaluation stratégiques telles que décrites dans la
matrice d'évaluation des études de cas :
49) Pour la période 2008-2011, quelle a été la contribution à l'élimination de la violence à l'égard des
femmes au Maroc des entités antérieures à ONU Femmes ? Quels sont les enseignements ?
(Section 4.2).
50) Quels ont été et sont les points forts et les faiblesses organisationnelles d’ONU Femmes et les
enseignements tirés de ses prédécesseurs en matière de planification, mise en œuvre, suivi et
l'évaluation de leur travail connexe sur l’élimination de la violence à l'égard des femmes ?
(Section 4.3).
51) Dans quelle mesure ONU Femmes s'est-elle stratégiquement positionnée de façon à bien prévenir
et intervenir face à la violence à l'égard des femmes dans des contextes mondial, régional et
national ? (Section 4.4).
Les enseignements/bonnes pratiques relevées dans les encadrés de ce chapitre reflètent les points de vue
des parties prenantes consultées, les observations et les conclusions des évaluations disponibles, et les
observations faites par l'équipe d'évaluation, en fonction des données disponibles.
4.2
Question stratégique n° 1 : Contributions aux
résultats et les enseignements retenus
4.2.1 Aperçu
Cette partie présente les conclusions de l'évaluation au Maroc sur la question d'évaluation n° 1 énoncée cidessus. La section 4.2.2 présente les résultats sur la pertinence des efforts d’UNIFEM pendant la période
2008-2011, le critère de pertinence recoupant les différentes dimensions du mandat d'ONU Femmes. Les
sections 4.2.3, 4.2.4 et 4.2.5 présentent des conclusions sur les contributions aux principaux résultats
énoncés dans le cadre logique des résultats des travaux d’UNIFEM sur l'élimination de la violence à l'égard
des femmes.346 La section 4.2.6 décrit un certain nombre de facteurs susceptibles d'avoir une influence sur
la pérennité des résultats obtenus à ce jour.
4.2.2 Pertinence
Enseignements/Bonnes pratiques
Au Maroc, la violence à l'égard des femmes et des filles est une
Tel qu’expliqué à la section 2 du
pratique néfaste ancrée dans la culture et les traditions. Les
présent rapport, la VÉFF est
interventions visant à éliminer cette pratique néfaste doivent mettre
ancrée dans la culture et les
l'accent sur le cadre juridique marocain et sur la sensibilisation du
traditions existant au Maroc. La
public à cette violation des droits de la personne.
VÉFF est souvent justifiée non
seulement par la personne qui a commis l’acte, mais également par celle qui l’a subi. Le travail accompli
par UNIFEM, notamment celui d’appuyer les efforts des ONG pour sensibiliser le grand public et les
décideurs (aux niveaux national et local) sur la problématique de la VÉFF apparaît, en conséquence, très
pertinent. Ceci a été confirmé par les parties prenantes consultées, qui ont d’ailleurs souligné, d’un côté,
l’importance de continuer le travail de sensibilisation sur la problématique afin d’influencer, à long terme,
la culture et les traditions qui, de manière directe ou indirecte, favorisent la reproduction de ce fléau et, de
346
Voir le rapport final d'évaluation. Annexe 3.2
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l’autre côté, de continuer l’appui et le renforcement des ONG, notamment les organisations des femmes,
qui ont joué jusqu’à présent un rôle décisif dans les avancées réalisées au pays sur le thème de l’égalité
hommes-femmes et de la lutte à la VÉFF.
Le soutien financier et technique
octroyé par UNIFEM et visant le
renforcement des capacités
Plusieurs intervenants ont souligné que les organismes
internationaux d'aide au développement devraient continuer à
institutionnelles semble également
appuyer le gouvernement du Maroc et la société civile dans les
aligné sur les priorités nationales
réformes en cours dans le pays et dans l’exécution et le suivi de
et les besoins de ces institutions.
celles-ci.
L’action d’UNIFEM s’est insérée
De plus, les parties prenantes interviewées ont exhorté à que le
dans le processus de mise en
soutien de ces organismes soit adapté au processus de
œuvre du cadre normatif et
régionalisation en cours dans le pays, conçu pour décentraliser le
législatif national révisé par le
processus décisionnel. Les organismes d'aide au développement
nouveau Code de la famille (2004)
doivent, selon elles, travailler davantage avec les institutions
et de la Stratégie nationale de lutte
régionales et provinciales.
contre la violence à l’égard des
femmes (2002) et de son plan opérationnel (2005). Ainsi, le travail réalisé par UNIFEM avec le Ministère
de la Justice (dans le cadre des projets d’appui aux sections de la famille), avec le Ministère des Finances
(pour la budgétisation sensible au genre), et avec le Ministère de la Solidarité, de la Femme, de la Famille
et du Développement social (pour le renforcement de la coordination des efforts ministériels sur le thème
de la VÉFF dans le cadre du programme Tamkine et du suivi de la mise en œuvre des stratégies nationales)
s’aligne sur les priorités nationales et les besoins de ces institutions.
La section 2 de ce rapport a également présenté l’état des services auxquels les femmes et les filles victimes
de violence ont accès et le rôle de premier plan joué par les ONG, notamment par le réseau ANARUZ, dans
l’offre de ces services. En même temps, compte tenu des chiffres sur la prévalence de la violence à l’égard
des femmes et des filles, le renforcement de ces services est nécessaire pour assurer leur accessibilité,
compromise par leur nombre et une coordination insuffisante entre les différents acteurs. Dans ce contexte,
le soutien d’UNIFEM au réseau ANARUZ se révèle très pertinent car il est venu combler certaines lacunes
des services offerts aux femmes et aux filles victimes de violence, en plus de promouvoir la réflexion
autour de ces services.
4.2.3 Dimension opérationnelle du mandat d'ONU Femmes
Les constatations suivantes portent essentiellement sur la dimension opérationnelle du mandat et du travail
d'ONU Femmes et de leurs principaux résultats énoncés dans le cadre logique des résultats reconstruit et
présenté dans le rapport final de l'évaluation initiale.
Résultats à court et à moyen terme
Renforcement du cadre juridique
par la reconnaissance de l'égalité
hommes-femmes comme principe
constitutionnel et
ratification/adoption des traités
internationaux sur les droits des
femmes.
Ce résultat concerne :
« La législation et les politiques sont élaborées, adoptées et mises
en œuvre pour répondre et prévenir la violence à l'égard des
femmes et des filles » (cadre logique des résultats)
« Politique et législation : la sensibilisation et le renforcement des
capacités pour la formulation d'une législation nationale concernant
la VÉF dans le respect des accords internationaux » (stratégie sousrégionale pour l'Afrique du Nord, 2008-2010)
Les intervenants interrogés ont
indiqué que l'inclusion, dans les
articles 19 et 22 de la Constitution
de 2011, des principes de respect de l'égalité hommes-femmes et de l'intégrité physique de tous les êtres
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humains constituaient l'une des réalisations les plus importantes de la période évaluée ici. Le soutien
d’UNIFEM envers le mouvement des femmes et, plus précisément, du Printemps pour l'égalité et de la
Coalition pour la Démocratie, est considéré comme ayant été déterminant pour assurer l'inclusion des droits
des femmes dans la nouvelle Constitution. Si le principe de l'égalité hommes-femmes existait déjà dans la
Constitution de 1996, les nouvelles dispositions réaffirment ces principes, conférant davantage d'autorité à
la lutte pour l'égalité et contre toutes les formes de discrimination. L'inclusion de ces principes s’avère,
pour les défenseurs de l'égalité, un
puissant levier pour exiger que des
mesures garantissant l'égalité
hommes-femmes soient adoptées par
Les intervenants interrogés ont considéré les changements pour
harmoniser le cadre juridique du Maroc avec le principe d'égalité
les gouvernements actuels et futurs.
Une autre réalisation importante a été
le retrait des réserves formulées par le
Gouvernement marocain sur la
Convention sur l'élimination de toutes
les formes de discrimination à l'égard
des femmes (CÉDEF)347 et
l’approbation, par le Conseil du
hommes-femmes, comme étant préliminaires, mais nécessaires
pour faire avancer les droits des femmes dans le pays. La grande
majorité a reconnu que la mise en œuvre efficace des lois sur
l'égalité hommes-femmes sera une autre bataille importante pour le
mouvement des femmes et les ONG des droits de la personne,
mais aussi qu'il restait encore beaucoup de travail à accomplir pour
garantir un cadre juridique non discriminatoire pour les femmes et
les filles.
Gouvernement et le Conseil des Ministres, du Protocole facultatif de la CÉDEF en 2011, qui nécessitera des
amendements à la législation nationale de façon à l'aligner sur les principes énoncés dans ces traités
internationaux.
Des ONG, soutenues par UNIFEM/ONU Femmes, concentrent actuellement leurs efforts sur le
renforcement du cadre juridique national à travers, notamment, la réforme du Code pénal. UNIFEM a, en
effet, appuyé la formation d’une coalition d’ONG (appelée « Printemps de la dignité ») et l’élaboration
d’outils pour plaider en faveur de la réforme de la législation pénale. Au moment de réaliser la mission sur
le terrain, les discussions sur la réforme du Code étaient encore en cours.
En termes de politiques, pour répondre à la violence à l'égard des femmes et des filles, il est aussi important
de souligner la contribution d’UNIFEM à l'institutionnalisation de l'action sociale au sein des sections de la
justice de la famille des tribunaux de première instance. Selon les intervenants, cette institutionnalisation de
l’action sociale découle directement du soutien d’UNIFEM au Ministère de la Justice dans la mise en
œuvre du Code de la famille de 2004. Le Ministère de la Justice a créé les sections de justice familiale,
pièce maîtresse de la mise en œuvre des droits des femmes dans le cadre de l’application du code de la
famille. Le succès du projet pilote d’UNIFEM, mis en place dans six sites pilotes, qui permettait à des
travailleurs sociaux d’être présents dans les cours des affaires familiales, a incité le Ministère de la Justice à
formaliser cette fonction. Entre 2010 et 2011, plus de 100 travailleurs sociaux ont ainsi été embauchés.
La mise sur pied, en 2012, d’un fonds d’entraide familiale par le Ministère de la Justice, a été également
rendue possible grâce au soutien d’UNIFEM dans la réalisation d’une étude de faisabilité sur la création
dudit fonds. Le fonds d’entraide familiale est destiné aux mères divorcées dont l’ex-conjoint ne remplit pas
ses obligations pour éviter qu’elles ne deviennent vulnérables à la violence suite à leur divorce. UNIFEM a
aussi contribué à l’harmonisation du calcul (baromètre) pour déterminer le montant de la pension
alimentaire fixé par les juges lors d’un divorce afin que cela ne dépende pas de la discrétion du juge.
Par ailleurs, le représentant de l'ONUSIDA a mentionné qu’UNIFEM a directement contribué à
l’intégration de la VÉFF au plan sectoriel de lutte contre le VIH/sida du Ministère de l'Éducation, en 2012,
grâce à son implication dans le programme Tamkine.
347
Le Maroc avait émis des réserves sur les articles 2, 9, 15, 16 et 29 de la Convention, subordonnant les droits des femmes
marocaines au choix de la résidence et du domicile, les droits de transmission de leur nationalité et de dissolution de leur mariage à
la Charia islamique et au Code marocain du statut personnel. Source : http://daccess-ods.un.org/TMP/4115878.9396286.html
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Outre les résultats mentionnés ci-dessus, UNIFEM a aidé le Conseil national des droits de la personne
(CNDH)348 à intégrer la question de l’égalité hommes-femmes dans sa structure et ses actions, en
contribuant aux résultats suivants :

La création du Groupe de travail permanent sur la parité, la non-discrimination et les nouvelles
générations de droits de la personne qui concentre son action sur les femmes et autres groupes
vulnérables ;

Le rôle joué par le CNDH dans l'élaboration du mandat, des pouvoirs et des fonctions de l'Autorité
pour la parité, un organisme créé en vertu des articles 19 et 164 de la Constitution de 2011 pour
lutter contre toutes les formes de discrimination. Grâce au soutien financier et technique fourni par
ONU Femmes, le CNDH a mené une étude comparative en 2011349 qu'il utilise aujourd'hui pour
déterminer les caractéristiques de la nouvelle autorité ;

L’inclusion de femmes victimes de la violence politique qui a secoué le pays de 1956 à 1999 dans
le processus de démocratisation au niveau régional. Selon les représentants du CNDH interviewés,
le soutien financier et technique d’UNIFEM a contribué à la réalisation d'études maintenant
utilisées comme outils de
référence pour une
Le comité de pilotage a proposé une série de recommandations
réflexion sur ce processus
pour la mise en œuvre du PANDDH. Les membres du comité
comprennent notamment l'exigence de protéger les femmes
et pour l'inclusion des
victimes de violence, et d'améliorer l'accès des femmes aux
femmes survivantes de
services de justice.
violence;

La mise en place d’une
commission sur l'égalité
hommes-femmes pour intégrer la question de l’égalité hommes-femmes dans la structure et le
travail du CNDH. Suite à sa mise en place, la commission sur l'égalité hommes-femmes a intégré le
comité de pilotage du Plan National pour la Démocratie et la Citoyenneté (PANDDH) 2011-2016,
ce qui a incité le comité à proposer une série de recommandations relatives aussi à la VFF pour la
mise en œuvre du PANDDH (voir encadré).350 Le comité a émis un avis pour la levée des réserves
à la CÉDEF ainsi que pour la reconnaissance du droit des femmes à l’accès à la terre.
Source : http://www.ccdh.org.ma/spip.php?article3125
348
Le Conseil national des droits humains est l'organe chargé de surveiller, de promouvoir et de protéger les droits humains au
Maroc. Dans le cadre de son mandat, le Conseil national des droits humains soumet au Roi du Maroc et au Gouvernement marocain
des circulaires et des conseils. Il surveille également la mise en œuvre des recommandations formulées par l'Instance Equité et
Réconciliation (IER). Après une longue période de violence politique et de violations flagrantes des droits humains commises après
l'indépendance de 1956, le Maroc a créé l'instance indépendante d'arbitrage dans le but d'indemniser les victimes en 1999. En 2002,
elle a été remplacée par l'Instance Équité et Réconciliation (IER). L'IER jouit d'un mandat beaucoup plus large pour enquêter sur
les violations graves et systématiques des droits humains et formuler des recommandations pour prévenir de nouvelles violations.
Elle a fait des efforts pour adopter une approche qui tient compte de la notion d’égalité hommes-femmes.
349
Conseil national des droits de l’homme, Vers la mise en place de l’Autorité pour la parité et la lutte contre toutes formes de
discrimination, Novembre 2011. Disponible à l'adresse: www.ccdh.org.ma/IMG/pdf/RapportVFNum.pdf
350
ONU Femmes, « Promotion des droits humains des femmes et de leur rôle dans le processus de justice transitionnelle au
Maroc» Rapport d'évaluation du projet par Khalid Lahsika, Baptiste Buob, Janvier 2010.
juin 2013
16
Renforcement des capacités des défenseurs de l'égalité hommes-femmes au Maroc pour influencer les
politiques et les actions portant sur la VÉFF.
Apprécié pour sa flexibilité et son
approche orientée sur le long terme,
UNIFEM, de 2008 à 2011, a apporté
aux défenseurs de l'égalité hommesfemmes au Maroc:
« Les défenseurs des femmes et l'égalité influencent les politiques,
les mesures et les budgets pour répondre à la violence à l'égard des
femmes » (cadre logique des résultats)

un soutien financier : les
« Les spécialistes et défenseurs de l'égalité et leurs organisations
représentants des ONG, des
ou réseaux exigent la mise en œuvre de dimensions d'égalité
agences des Nations Unies et
hommes-femmes dans les lois, les politiques et les stratégies »
des gouvernements ont
tandis que les « politiques clés, la prestation de services et les
grandement apprécié ce
institutions médiatiques créent un environnement institutionnel
soutien, compte tenu de la
propice visant à promouvoir et à protéger les droits de la personne
concurrence et des ressources
des femmes en accord avec accords mondiaux, régionaux et
nationaux. » (Stratégie sous-régionale pour l'Afrique du Nord, 2008limitées et des problèmes de
2010)
viabilité de nombreuses
ONG. Les intervenants
interrogés ont affirmé que la plupart de leurs initiatives n'auraient pu avoir lieu sans ce soutien. Un
exemple donné est celui de l'enquête de prévalence menée par le Haut Commissariat au Plan. Le
représentant du Haut Commissariat au Plan a indiqué que cette enquête (dont l'importance a été
soulignée par l'ensemble des intervenants interrogés, grâce à la qualité de ses données sur la VÉFF,
méthodologiquement robustes, valides et, à l'échelle nationale, utiles pour défendre l'égalité)
n'aurait pu être réalisée sans le soutien financier d’UNIFEM, qui a permis la formation et le
déplacement d’agents
recenseurs dans tout le
pays. Les caravanes
organisées par la
Les intervenants au Maroc considèrent le soutien d’UNIFEM/ONU
Femmes dans la production d'information spécialisée et des
fondation Ytto dans les
données robustes sur VÉFF comme une importante contribution aux
zones reculées du pays
efforts pour éliminer la VÉFF. L'information spécialisée et des
en sont un autre
données robustes sont essentielles pour les activités de plaidoyer.
exemple. Elles ont
Compte tenu de l'amplitude de la VÉFF, sous ses différentes
donné une visibilité à la
formes, les connexions à d'autres thèmes (par exemple, le travail
question des mariages
domestique des enfants, le VIH/sida, et la traite des êtres humains),
et le peu d'informations disponibles dans le pays à ce jour, les
coutumiers et précoces,
intervenants consultés ont considéré que beaucoup de travail reste
souvent associés à des
à faire en ce qui concerne la production d'informations et de
violations des droits de
données spécialisées dans certains de ces thèmes.
la personne. UNIFEM a
également fourni un
soutien financier aux représentants des ONG et du gouvernement pour leur permettre d’assister à
des événements régionaux ou internationaux, créant ainsi, pour eux, des occasions de partager leurs
expériences ;

un soutien technique : les documents, données et renseignements spécialisés fournis par UNIFEM
ont été considérés par des ONG, des représentants du gouvernement, des institutions publiques et
d'autres organismes des Nations Unies comme des outils précieux pour l'accomplissement de leur
travail. Ce type de soutien a été particulièrement apprécié par les représentants des ONG, ces
derniers affirmant que ces outils structuraient leur réflexion stratégique et les aidaient à développer
des stratégies en phase avec la mission et les objectifs de leurs organisations.
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17
Sur le plan des politiques, des mesures et des budgets touchant la question de la VÉFF, le soutien
d’UNIFEM a contribué aux résultats suivants :

Régularisation de 10 000 mariages coutumiers (fatiha) et établissement d’actes de naissance pour
50 000 enfants dans plusieurs villages reculés du pays (provinces d’Ouarzazate, d’Azilal, et
d’autres). Les actes de naissance sont obligatoires pour l’obtention d’une carte d’identité qui
permet la reconnaissance des droits fondamentaux de la personne et garantit l'accès aux services. Il
s'agit d'une étape cruciale pour garantir aux filles et aux femmes le droit d’hériter et le droit à la
subsistance après un divorce. Suivant le chemin tracé par la fondation Ytto, les ONG ont lancé des
campagnes de sensibilisation organisées avec UNIFEM (soutien financier) pour l'application de
l'article 16 du Code de la famille de 2004 (qui prévoit que le mariage est une preuve suffisante de
l'existence des droits qui en découlent). Le Ministère de la Justice a organisé des tribunaux dans des
régions reculées du pays pour enregistrer les mariages et ainsi régulariser les cas de mariage
coutumier ;

Prolongation du délai relatif à l’application de l'article 16 du Code de la famille de 2004
(reconnaissance du mariage coutumier) à l'année 2014. Le travail de plaidoyer effectué par la
fondation Ytto et d'autres ONG, soutenues par UNIFEM, a permis de prolonger le délai
d’enregistrement des mariages prévu en 2009 à 2014;

La révision du Code pénal et du Code de procédure pour la protection des femmes et des enfants,
qui, selon nos entrevues, est actuellement influencée par la coalition d'ONG « Printemps de la
dignité », avec le soutien d’UNIFEM/ONU Femmes ;

Tous les intervenants interrogés ont également estimé qu’UNIFEM a contribué, en particulier à
travers le programme Tamkine, à une collaboration meilleure ou accrue entre les ONG, le
gouvernement et d'autres agences des Nations Unies. Ils ont souligné la volonté du gouvernement
de collaborer avec les ONG sur la nouvelle Constitution, et ont donné l’exemple des programmes
de formation en matière de VÉFF proposés par les ONG aux fonctionnaires comme preuve d'une
meilleure collaboration.
Renforcement de la qualité des services fournis par les systèmes de justice et de santé aux victimes de
VÉF
Au cours de la période 2008-2011,
UNIFEM a appuyé un certain
nombre d'initiatives visant à
améliorer la qualité des services
pour les femmes victimes de VÉF.
« Les autorités nationale et locale à accroître le nombre et/ou la
qualité des services essentiels aux victimes de VFF » (cadre logique
des résultats)
Comme mentionné ci-dessus, une
« Un grand nombre de systèmes de justice formels et informels
de ces initiatives a été l'appui
appuient et protègent les droits de la personne des femmes aux
fourni au Ministère de la Justice
niveaux national et local » (Stratégie sous-régionale pour l'Afrique
pour l'institutionnalisation de
du Nord, 2008-2010)
l'action sociale dans les sections de
justice familiale. Parmi les résultats espérés de l’intervention des travailleurs sociaux il y a : 1) une
meilleure qualité des sentences rendues par les tribunaux de famille et 2) l’accès des mères divorcées à une
pension alimentaire adéquate pour leurs enfants de manière à leur éviter une situation de précarité
économique, facteur qui favorise souvent la violence. Lorsque cette mission sur le terrain a été réalisée, une
évaluation de cette initiative venait de commencer. Aucune donnée n'est donc encore disponible sur les
différences constatées dans la qualité des services proposés aux femmes et aux filles victimes de violence.
Les répondants estiment toutefois que la qualité des services offerts aux femmes survivantes de violence a
été améliorée grâce à la mise en place du Fonds d'entraide familiale ainsi qu’à la création d’une échelle de
juin 2013
18
calculs (baromètre) pour déterminer le montant de la pension alimentaire, déjà évoqués plus tôt. Le soutien
d’UNIFEM, dans ce cas, cible les mères divorcées qui sont plus vulnérables face à la violence.
Une autre initiative appuyée par UNIFEM visant à améliorer la qualité des services pour les femmes
victimes de VÉF est le volet du programme Tamkine visant à améliorer la chaîne multisectorielle des
services351 proposés par les principaux intervenants de cette chaîne (par exemple, les ONG, le Ministère de
la Santé, la police, le Ministère
de la Justice et le Ministère de la
Solidarité de la Femme, de la
Famille et du Développement
Une stratégie efficace pour encourager les politiques marocaines,
social). L'évaluation de 2012 du
les actions et les budgets pour lutter contre la VÉFF, et accélérer le
programme Tamkine352 a
processus de changement consiste à faciliter la
coordination/collaboration entre les intervenants afin que tout le
reconnu la territorialisation des
monde défende un seul et même message. Des coalitions d'ONG
services hospitaliers et des
ont été créées pour plaider en faveur de la révision du Code de la
cellules de prise en charge
famille, du Code criminel et de la Constitution. Une collaboration a
provisoire pour femmes victimes
également eu lieu entre le gouvernement, les ONG et les agences
de violence comme une des
des Nations Unies dans le cadre du programme Tamkine.
réussites du programme.
L'évaluation a également relevé un certain nombre d'activités menées pour améliorer les services offerts à
ces femmes et à ces filles (relatives aux équipements dans les unités hospitalières et les cellules de prise en
charge provisoire, le développement des capacités des prestataires de services dans les six régions pilotes,
et la formation des fonctionnaires : juges et policiers). L'évaluation de 2012 du programme Tamkine
n’indique pas si ces activités ont permis d'améliorer les services aux femmes et aux filles, d’une part parce
que certaines données manquaient et, d’autre part, parce que trop peu de temps s'était écoulé entre la mise
en œuvre des activités et leur évaluation.
Sensibilisation à la violence à l'égard des femmes auprès des décideurs et des membres de la
communauté au Maroc
Les entrevues menées ont conclu que, depuis le début du nouveau millénaire, la sensibilisation du grand
public, du gouvernement, des
autorités locales et des
Ce résultat concerne : « La sensibilisation et le soutien public des
agences de l'ONU et leur
décideurs, leaders et membres de la communauté pour mettre fin
soutien pour mettre fin à la
aux VÉF » (cadre logique des résultats)
VÉFF ont grandi. Les
entretiens suggéraient par
ailleurs que les progrès enregistrés sont attribuables au travail d'un large éventail d'intervenants, notamment
d’UNIFEM. UNIFEM est apprécié pour le soutien constant qu’elle a apporté, au fil des ans, aux initiatives
visant à éliminer la violence. Au cours de la période 2008-2011, les intervenants ont estimé que l'une des
contributions les plus importantes d’UNIFEM a été de convaincre le F-OMD de se concentrer sur la
thématique de la VÉFF. Cela a permis aux agences onusiennes et au gouvernement marocain de travailler
main dans la main, y compris des ministères, tels que le ministère de l'Agriculture, auparavant exclus de ce
genre d'initiatives. L'évaluation de 2012 du programme Tamkine a également relevé une sensibilisation
accrue à la VÉFF chez les bénéficiaires, tout en reconnaissant que les niveaux de sensibilisation étaient
inégaux d'une région à l'autre.
351
En fournissant du matériel (par exemple, des ordinateurs et un accès internet), suffisamment d'espace physique et de la
documentation sur la formation et le renforcement des capacités des prestataires de services et des fonctionnaires du ministère de la
Justice et de la police (par exemple, des lignes directrices et normes sur la façon de traiter les femmes et les filles victimes de
violence).
352
Virginie Dayde, Hicham Hantar, « Rapport d’évaluation finale du programme conjoint multisectoriel de lutte contre les
violences fondées sur le genre par l’autonomisation des femmes et des filles au Maroc – Tamkine », 11 juillet 2012.
juin 2013
19
Les questions de sensibilisation et de soutien ont également été soulevées par les projets de la fondation
Ytto (financée par UNIFEM) et de l'INSAF (qui a reçu le support financier du Fonds d'affectation spéciale
des Nations Unies pour l'élimination de la violence à l'égard des femmes). Les représentants de la fondation
Ytto ont indiqué que dans de nombreux villages où ils ont mené des activités de sensibilisation, les femmes
victimes de violence, les membres de la communauté et les autorités locales ont commencé à modifier leurs
attitudes et à s'impliquer dans
des activités de soutien aux
femmes victimes de violence.
Le fait de travailler avec les autorités aux niveaux national et local
Les représentants de l'INSAF
au Maroc a montré aux OSC et à ONU Femmes que les efforts
ont déclaré que les autorités
menés dans la lutte contre la VÉFF dépassaient les clivages
locales du ministère de
politiques. Travailler avec les autorités nationales et locales a
l'Éducation dans les villages où
également révélé l'importance de sensibiliser le public — une
première étape fondamentale pour obtenir la coopération des
ils travaillaient avaient
autorités. En effet, le travail avec les autorités nationales et locales
commencé à aider les enfants
a montré que, parfois, ces autorités n’étaient pas contre l’élimination
travaillant comme domestiques,
de la VÉFF, mais tout simplement elles ne connaissaient pas
et à faire en sorte qu'ils aillent à
l’ampleur de la problématique ou les conséquences de la violence.
l'école. Ils affirment que dans
les villages où ils travaillaient, les enfants ne sont plus retirés de l'école. Ils ont reconnu, toutefois, la portée
limitée de leurs activités, en espérant qu'elles seront développées par le gouvernement.
L'enquête menée par le HCP avec le soutien d’UNIFEM a également contribué à sensibiliser les personnes
sur la VÉFF. Même si aucune étude n'a encore été menée pour évaluer l'effet des résultats de l'enquête sur
la sensibilisation du public à la VÉFF, les intervenants ont noté que les médias et les responsables
gouvernementaux citaient les résultats de l'enquête sur la prévalence de la VÉFF, disséminant ainsi le sujet.
UNIFEM a sensibilisé aussi sur les liens entre la violence et d'autres questions, telles l'autonomisation
économique, le VIH/sida, le travail domestique des enfants, la traite des femmes et des filles, et la condition
de mère célibataire.
Résultats à moyen-long terme
Les intervenants ont indiqué que des changements de taille dans la lutte pour éliminer la VÉF au Maroc
avaient été amorcés bien avant 2008. Tous se sont entendus pour dire que le Maroc n'est pas encore un pays
où les femmes et les filles sont exemptes de toute forme de violence à caractère sexiste et de menaces de
violence, ou encore où les victimes de VÉFF reçoivent le soutien dont elles ont besoin. Néanmoins, les
acquis obtenus, en particulier sur le plan de la législation, sont considérés comme des réalisations sur
lesquelles les futurs gouvernements devront rendre des comptes et sur lesquelles l'évolution des normes et
des comportements pourraient se construire. Le référentiel religieux au sein du gouvernement était une
préoccupation pour certains représentants de groupes d'intervenants, qui craignaient des répercussions sur
le processus de réforme en cours et sur les changements d'attitude et de comportement. Cependant, le fait
que la violence fondée sur le sexe ait été déclarée une priorité nationale inscrite dans le programme
gouvernemental pour l’égalité 2012-2016, que la réforme du Code pénal est en cours et que le Ministère de
la Femme travaille actuellement sur un projet de loi spécifique sur les violences domestiques sont vus par
plusieurs parties prenantes comme des éléments encourageants pour la poursuite des réformes au Maroc.
De plus, la plupart des intervenants ont constaté un certain nombre de changements positifs, tel qu'indiqué
ci-dessous.
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20
Normes institutionnelles et comportements en phase de devenir plus favorables à l'élimination de la
violence à l’égard des femmes et des filles au Maroc
Les intervenants ont souligné que de nombreux défis faisaient obstacle à l'affirmation de normes
institutionnelles et sociétales et aux
comportements qui soutiennent
Ce résultat concerne : « les normes institutionnelles et sociétales et
les comportements en faveur de l'élimination de la violence à l’égard
l'élimination de la VÉFF. Si les
des femmes » (cadre logique des résultats)
intervenants ont reconnu les progrès
réalisés par le Maroc depuis 2000 (en
« Les politiques, la prestation des services et les institutions
particulier en matière de normes
médiatiques créent des environnements institutionnels favorables
visant à promouvoir et à protéger les droits de la personne des
institutionnelles et de comportements),
femmes dans la lignée des accords mondiaux, régionaux et
la tolérance culturelle et religieuse de
nationaux » (stratégie sous-régionale pour l'Afrique du Nord, 2008la VÉFF, la masculinité, la pauvreté,
2010)
l'analphabétisme et l'impunité sont
encore profondément enracinés dans la
société marocaine. Les occurrences de suicides de jeunes filles violées et, dans certains cas, forcées
d'épouser l'auteur de ces violences continuent de se produire.353 Certains intervenants ont indiqué que des
représentants du gouvernement se sont appropriés du dossier de l'élimination de la VÉFF, sans pouvoir
l'institutionnaliser, étant donné le manque de ressources, une mentalité conservatrice très répandue, et la
lourdeur des structures bureaucratiques et des processus au sein de certains ministères.
Les gouvernements national et local doivent de plus en plus rendre des comptes auprès des femmes et
des filles en matière de prévention, de protection, et de réponse à la VÉFF grâce à la mise en œuvre
de budgets tenant compte de la problématique hommes-femmes et à la mise en place de systèmes
d'information
Pendant la période 2008-2011, UNIFEM a aidé à renforcer la responsabilité du gouvernement sur
l’élimination de la VÉFF en contribuant à des changements constitutionnels et législatifs importants qui ont
aussi des implications en termes de
reddition de comptes car la nouvelle
Constitution dispose d’une nouveauté
« Les représentants du gouvernement et les prestataires de
qui est l’effectivité des droits reconnus
services doivent rendre des comptes auprès des femmes et des
aux citoyens-ennes. En effet, l’article 6
filles en matière de prévention, de protection et d'intervention en
de la Constitution énonce
matière de VÉF » (cadre logique des résultats)
l’engagement des pouvoirs publics à
« L'augmentation du nombre de processus budgétaires intégrant
œuvrer pour « la création des
pleinement l'égalité hommes-femmes » (Stratégie sous-régionale
conditions permettant de généraliser
pour l'Afrique du Nord, 2008-2010)
l’effectivité de la liberté et de l’égalité
des citoyennes et des citoyens, ainsi que leur participation à la vie politique, économique, culturelle et
sociale ». L’article 30, quant à lui, énonce la nécessité de prévoir dans la loi « des dispositions de nature à
favoriser l’égal accès des femmes et des hommes aux fonctions électives ».
Qui plus est, UNIFEM a renforcé la reddition de comptes des autorités gouvernementales notamment à
travers l’appui octroyé à la budgétisation sensible au genre (BSG) au niveau national et local. Au niveau
national, UNIFEM/ONU Femmes a soutenu le Ministère des Finances dans la mise en œuvre du processus
de BSG avec de très bons résultats, tels que l'institutionnalisation d'un rapport annuel sur le genre et
l’identification d’indicateurs spécifiques à l’élimination de la VÉFF dans les programmes de certains
ministères. Dans le rapport sur le budget genre relatif au projet de loi de finances pour l’année budgétaire
2012, par exemple, le Ministère de la Justice a identifié, parmi d’autres, les indicateurs « Nombre de
cellules chargées des femmes et des enfants aux tribunaux » et « Normes de qualité des prestations de prise
353
Article 475 : cet alinéa vient d’être abrogé par la deuxième chambre du parlement.
juin 2013
21
en charge des femmes et des enfants victimes de violence » pour le suivi genre de ses programmes sur
l’amélioration de l’accès à la justice. Au niveau local, le travail de BSG appuyé par UNIFEM a été intégré
au cadre du programme Tamkine. En partenariat avec la Direction générale des collectivités locales, les
provinces et les communes ciblées par le programme, UNIFEM a contribué à la mise au point d’un système
d’information au niveau municipal capable d'intégrer des indicateurs sur le genre, y compris le type de
violence perpétrée, pour des fins de planification, de budgétisation et de mise en œuvre de plans de
développement des communes. Il est cependant encore trop tôt pour en évaluer l'impact, puisque le système
a seulement été testé dans six municipalités à ce jour et doit encore être étendu à l'échelle nationale. En
outre, pour ce qui est de la BSG au niveau national, l’appropriation de la BSG par les ministères, mais aussi
par les membres du Parlement et les organisations de la société civile (OSC) est essentielle pour que le
rapport genre soit utilisé comme un outil efficace de responsabilité.
De l’autre côté, UNIFEM/ONU Femmes a travaillé, indirectement, sur le renforcement de la responsabilité
du gouvernement à travers l’appui fourni aux organisations des femmes et aux organisations pour la
protection des droits humains pour renforcer leurs capacités à maintenir les autorités gouvernementales
responsables du respect de la législation nationale et des engagements pris au niveau international. Au-delà
des résultats importants obtenus en termes de développement d’argumentaires de plaidoyer et de formation
de coalitions d’ONG sur des thèmes spécifiques (comme ceux pour la révision de la Constitution ou de la
législation sur l’égalité hommes-femmes en matière successorale), un résultat remarquable obtenu tout
récemment (décembre 2012) est celui de la mobilisation de femmes victimes de violence pour manifester
en faveur de la refonte du Code pénal.354
Au Maroc, les femmes et les jeunes filles victimes de violence demandent et obtiennent de meilleurs
services, mais des lacunes persistent dans l’accès à ces services
Selon les entrevues et l’analyse des
documents de projet réalisées,
l’accès à des services appropriés
« Les femmes et les filles victimes de VÉF ont accès aux services
pour les femmes et les jeunes filles
nécessaires lorsqu'elles en font la demande » (cadre logique des
victimes de violence s’est amélioré
résultats)
grâce , entre autres, au soutien
donné par UNIFEM au réseau ANARUZ. En effet, plusieurs projets appuyés par UNIFEM pendant la
période 2008-2011, visaient le renforcement des centres d’écoutes pour les femmes survivantes de
violence. Ainsi, par exemple, grâce à l’appui financier d’UNIFEM, il a été possible de développer des liens
d’échanges, d’écoute et de partage entre les ONG féminines et les ONG travaillant sur le sida. Selon les
rapports projet consultés, le résultat est probant : les centres d'écoute pour les femmes victimes de violence
sont aujourd'hui plus attentifs aux éventuelles infections du VIH/sida et, en même temps, les OSC
travaillant sur le VIH/sida sont de plus en plus sensibles aux questions de la VÉFF.355 Par ailleurs, le réseau
a également été renforcé grâce à une meilleure coordination entre les différents centres permettant de
partager les expériences, d’uniformiser les méthodes et l’approche de travail du réseau. Le répertoire de
2012 des interventions des Nations Unies pour l’élimination de la VÉF356 mentionne qu’au Maroc, grâce à
l’appui octroyé par UNIFEM/ONU Femmes au réseau ANARUZ, environ 1700 femmes survivantes de
violence ont eu accès à des services d’orientation et à du soutien psychologiques et juridiques.
354
La « Chaîne humaine de solidarité pour une législation pénale qui protège les femmes et fillettes contre la violence et prohibe la
discrimination basée sur le genre » a défilé dans les rues de Rabat le 8 décembre 2012.
355
Rapport final des Fonds d’appui aux programmes ONUSIDA 2010 /2011 (FAP).
356
ONU Femmes. “Inventory of United Nations system activities to prevent and eliminate violence against women.” February
2012.
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22
De l’analyse des documents du projet, il ressort aussi que les femmes « viennent se plaindre plus
rapidement et n’attendent plus d’être violentées plusieurs fois, ce qui constitue une grande avancée en
termes de prise de conscience des femmes de leurs droits, notamment pour la protection effective de leurs
droits et de ceux des enfants ».357 De plus, les documents révèlent que le temps d’attente pour l’obtention
d’un jugement dans les cas de divorce et de pension alimentaire s’est amélioré, « mais il reste néanmoins
difficile pour les femmes de faire appliquer ces jugements, notamment en matière de pension
alimentaire ».358
Aussi, grâce à l’appui d’UNIFEM, l’importance de lier les efforts d’élimination de la VÉFF à des efforts
pour l’autonomisation économique des femmes survivantes fait son chemin dans les consciences. Non
seulement le programme Tamkine a permis de faire ce lien, mais aussi, pendant la période 2008-2011,
d’autres initiatives en ce sens ont été appuyées par UNIFEM. L’une d’entre elles a mené à la création d’un
fonds (« Fonds Attahadi ») d’appui aux activités génératrices de revenu économique pour femmes victimes
de violences fondées sur le genre et l’autre à la formation d’une coalition d’ONG pour le plaidoyer en
faveur de l’égalité hommes-femmes en matière successorale.
Cependant, des lacunes importantes dans la quantité et la qualité des services existants (centres d'écoute,
foyers d'accueil pour femmes, conseil) persistent encore. De même, des obstacles de taille à l'accès à ces
services continuent d'exister. Comme mentionné ci-dessus, les obstacles ont trait aux attitudes et aux
comportements des prestataires de services et des fonctionnaires, mais aussi aux croyances religieuses et
culturelles, aux normes, au manque de sensibilisation d’encore beaucoup de femmes et de filles, et à la
nature centralisée des politiques et des structures. En ce qui concerne ce dernier point, l'évaluation de 2012
du programme Tamkine a conclu que la territorialisation des services pour les femmes et les jeunes filles
victimes de violence n'a pas encore été atteinte et que la lenteur de la territorialisation est un obstacle
important à l'accès effectif aux services. L'évaluation relevait également que l'accès aux services de
proximité dépendait de la volonté des individus et de la capacité de dynamisation locale des ONG au
niveau local.
4.2.4 Dimension intergouvernementale/normative du mandat
d'ONU Femmes
Les travaux relatifs à la dimension intergouvernementale/normative du mandat d'ONU Femmes sont en
grande partie réalisés au niveau du siège de l’organisation. L'évaluation examinait si des liens existaient
entre le travail opérationnel au niveau des pays au Maroc et le travail normatif au niveau mondial, et quelle
forme ils prenaient.
La collecte de données sur les efforts d’UNIFEM au Maroc a montré que la dimension normative a été
étroitement liée à la dimension opérationnelle. La CÉDEF, en effet, a été utilisée par les ONG et les
institutions chargées de la protection des droits humains comme point de référence pour leurs actions. Par
exemple, selon les entrevues réalisées, il ressort que le retrait des réserves formulées sur la CÉDEF et
l’adoption par le gouvernement de son Protocole facultatif en 2011 ont été rendus possible en partie grâce à
l'appui d'UNIFEM au mouvement féministe et aux institutions nationales ayant un mandat sur les droits de
la personne (à savoir, le Conseil national des droits de la personne (CNDH)). Le soutien technique
d'UNIFEM au CNDH a permis de mettre en place une commission sur l'égalité hommes-femmes pour
intégrer la question de l’égalité hommes-femmes dans la structure et le travail du CNDH. La commission
sur l'égalité hommes-femmes a soumis un mémorandum au Roi préconisant le retrait des réserves sur la
CÉDEF et la ratification de son Protocole facultatif.
357
Association démocratique des femmes du Maroc. Renforcement des centres d’écoute de femmes victimes de violences pour la
lutte contre les violences à l’égard des femmes et des filles au Maroc. Rapport final. Mars 2010-Août 2012.
358
Association démocratique des femmes du Maroc. Renforcement des centres d’écoute de femmes victimes de violences pour la
lutte contre les violences à l’égard des femmes et des filles au Maroc. Rapport final. Mars 2010-Août 2012.
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23
Comme il ressort aussi des documents analysés, les partenaires d’UNIFEM ont utilisé la CÉDEF comme
source de référence ou instrument de plaidoyer. Par exemple, dans le cas du projet avec le Ministère de la
Justice pour améliorer l’accès à la justice et assurer la mise en œuvre du Code de la famille, la CÉDEF a été
utilisée pour le renforcement des capacités des juges à appliquer des standards universels en matière de
droits humains. Cela a eu pour résultat que des jugements prononcés en matière de pension alimentaire et
de garde des enfants ont commencé à référer à la CÉDEF et à la Convention sur les Droits de l’Enfant.359
Le projet VIH/sida vise « le renforcement des capacités des membres du réseau ANARUZ en termes de
suivi et d’évaluation des progrès réalisés dans le respect des engagements sur l’égalité de genre et les droits
humains des femmes et des filles dans le contexte du VIH (engagements UNGASS, CEDAW) ».360 La
CÉDEF a servi de texte de référence à des fins de plaidoyer : i) par le réseau ANARUZ, pour analyser les
lacunes et les défaillances existantes qui entravent l’application des lois et la protection des femmes et des
filles sur les questions de mariage précoce et du partage des biens acquis pendant le mariage;361 et ii) par la
coalition « Printemps de la dignité », pour développer les arguments du plaidoyer en faveur de la refonte du
Code pénal.362 De plus, les ONG sont organisées en coalition pour la rédaction de rapports parallèles sur
l’état de mise en œuvre de la CÉDEF par le Maroc. Leurs rapports sont utilisés par le groupe CÉDEF.
De plus, aussi bien les intervenants gouvernementaux que ceux de la société civile ont reconnu le soutien
constant qu’UNIFEM leur a apporté pour leur permettre de participer à des réunions et à des forums
mondiaux sur des thèmes liés à la CÉDEF et à la Commission de la condition de la femme (CCF). Certains
représentants du gouvernement, en particulier, ont reconnu que le fait d'assister aux réunions de la CCF a
aidé leur capacité à influencer l'action du gouvernement sur des questions spécifiques et d'alimenter le Plan
cadre des Nations Unies pour l'aide au développement (PNUAD).
4.2.5 Dimension de la coordination entre les agences des
Nations Unies du mandat d'ONU Femmes
Il ressort des entrevues réalisées que c’est grâce aux encouragements d’UNIFEM que différents acteurs
gouvernementaux et des Nations Unies ont présenté une proposition de programme conjoint sur
l'élimination de la VÉFF et l’autonomisation des femmes (devenu le programme Tamkine) pour répondre à
l’appel du Fonds pour la réalisation des Objectifs du Millénaire pour le développement (F-OMD) sur
l’OMD 3 (égalité hommes-femmes). De plus, toutes les parties prenantes interviewées ont reconnu le rôle
clé joué par UNIFEM dans la coordination du programme Tamkine. Tous considèrent qu’UNIFEM, par
son rôle de coordination et de soutien, a contribué indirectement à améliorer, dans six régions pilotes, la
qualité des services hospitaliers et des cellules de prise en charge provisoire mises en place par le Ministère
de la Justice pour les femmes victimes de violence.
359
Programme « Appui à l’application du code de la famille par la facilitation de l’accès des femmes aux services de la Justice » Genre et Gouvernance démocratique. Rapport de la réunion du Comité de Pilotage. Rabat, le 17 Octobre 2011.
360
Association Troisième Millénaire pour le développement de l’action associative du Sud-Est. Demande d’appui à UNIFEM pour
le projet « Renforcement de compétences des ONG de défense des droits des femmes au Maroc dans la lutte contre le VIH/sida et
le plaidoyer pour le suivi des engagements nationaux dans le domaine ».
361
Réseau national des centres d’écoute des femmes victimes de violence. Les violences fondées sur le genre au Maroc : mariage
des mineurs et partage des biens acquis pendant le mariage : lacunes du texte et difficultés de l’application. Mai, 2012.
362
Printemps de la dignité : pour une législation pénale qui protège les femmes contre la discrimination et la violence. Rapport
final, avril-décembre 2011.
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24
Certaines agences onusiennes ont travaillé ensemble sur d'autres projets, mais leurs représentants ont dit
que programme Tamkine avait réuni pour la première fois tous les organismes autour d'un thème
spécifique. Cette coordination a permis une plus grande efficacité du système des Nations Unies pendant le
déroulement du programme Tamkine (qui a duré quatre ans), et offert de nouvelles possibilités de
collaboration entre certains organismes à l'issue du programme. Tous les représentants ont déclaré qu'une
autre phase du programme Tamkine était nécessaire afin de parvenir au même niveau de coordination.
En dehors du travail effectué dans le cadre du programme Tamkine, en termes de programmation conjointe,
on peut aussi mentionner le travail accompli par UNIFEM avec le Ministère de la Justice sur les Sections
de la famille des tribunaux de première instance, un travail auquel ont également collaboré le PNUD et
l’UNICEF. D’après ce qu’a compris l’équipe d’évaluation, d’autres agences ont mis en place des
programmes pour l’élimination de la VÉF, mais aucun autre programme conjoint des agences des Nations
Unies sur ce thème n’a été développé au Maroc. Une proposition au Fonds d’affectation spéciale pour
l’élimination de la violence à l’égard des femmes avait été présentée en 2012 par sept agences de l’ONU, y
compris ONU Femmes, l’UNICEF et l’UNESCO, mais la proposition n’a pas été retenue.
4.2.6 Pérennité des résultats
De l’analyse des documents du projet et des entrevues réalisées, il ressort qu’afin de promouvoir la
pérennité des résultats des
initiatives appuyées, UNIFEM a
utilisé les stratégies suivantes :

le renforcement des
capacités tant des
institutions
gouvernementales que
des organisations de la
société civile;
Deux principaux enseignements sur le plan de la pérennité des
résultats ressortent de l'expérience du travail sur la VÉFF au Maroc.
Le premier enseignement est que l’appropriation n'équivaut pas
l'institutionnalisation. Seule l'institutionnalisation peut assurer la
pérennité des résultats et des efforts.
Le deuxième enseignement a trait à la nécessité de passer d'une
approche individuelle à une approche organisationnelle lorsque l'on
travaille avec des organisations, afin de surmonter les problèmes
liés à la rotation du personnel.

le soutien à des initiatives
visant la révision du
cadre législatif du Maroc et pour une effectivité de la protection des droits des femmes ainsi que le
renforcement de la redevabilité de l’État pour la mise en œuvre de ces lois;

le soutien aux activités de production et de dissémination des connaissances et des données sur la
VÉFF destinées à être utilisées, par différents acteurs, pour le plaidoyer ainsi que pour la
sensibilisation du public et des décideurs;

le soutien à des coalitions d’ONG pour que la cause de l’élimination de la VÉFF ne soit pas portée
exclusivement par les organisations des femmes; et

l’accompagnement des partenaires sur plusieurs années pour que : i) lorsque nécessaire, les
changements de mentalités et de comportements puissent avoir le temps de se produire, et ii) les
partenaires, notamment les ONG et les coalitions d’ONG, puissent avoir le temps de se renforcer et
de développer les stratégies qui guideront leurs actions.
Cela dit, il est important de reconnaître que plusieurs facteurs de contexte sont susceptibles de soutenir ou
d'entraver la pérennité des résultats obtenus à ce jour pour mettre fin à la VÉFF au Maroc. Ces facteurs sont
présentés dans le tableau ci-dessous.
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Tableau 4.1 Facteurs susceptibles d'influencer la pérennité
Dimension
Facteurs favorables
Facteurs limitatifs/défavorables
Appropriation des
questions touchant
l’élimination de la VÉFF et
l’égalité homes-femmes
par les instances
gouvernementales
Un engagement ferme de Sa Majesté
le Roi Mohammed VI pour
promouvoir l'égalité hommes-femmes
par la réforme du cadre juridique.
Engagements internationaux
découlant de la CÉDEF.
Programme gouvernemental
inscrivant la lutte contre les violences
parmi les préoccupations du
gouvernement pour sa législature
2011-2016.
Le référentiel religieux du nouveau
gouvernement, des déclarations de
représentants du gouvernement, ainsi que la
décision par le Ministère de la Solidarité, de la
Femme, de la Famille et du Développement
Social de ne pas organiser en 2012 de
campagne nationale pour l’élimination de la
VÉFF ont soulevé des inquiétudes parmi
certaines parties prenantes sur le suivi des
engagements pris par l’État en matière d'égalité
hommes-femmes et d'élimination de VÉFF.
La capacité de coordination limitée du Ministère
de la Solidarité, de la Femme, de la Famille et
du Développement social, qui est le ministère
principalement responsable des questions
d'égalité hommes-femmes.
Certains répondants craignent que, suite aux
élections de 2011, le nouveau contexte au
Maroc ne soit plus aussi propice à un dialogue
soutenu entre les ONG et le gouvernement et
aux réformes en faveur de l’égalité hommesfemmes et l’élimination de la VÉFF comme il
avait pu l’être auparavant.
Renforcement de la
capacité des organisations
de femmes/Défenseurs de
l'égalité hommes-femmes
Mouvement des femmes fort et
expérimenté.
Forte capacité du mouvement des
femmes à unir leurs forces avec
d'autres ONG pour appuyer les
questions d'égalité hommes-femmes.
Diversité des approches utilisées par
les organisations féminines et les
défenseurs dans la promotion de
l'égalité hommes-femmes.
Ressources financières limitées des ONG, qui
doivent compter en grande partie sur le travail
bénévole.
Préoccupations exprimées par certaines ONG
sur la capacité des organisations de femmes et
des défenseurs de l'égalité hommes-femmes à
transmettre un message uniforme.
Préoccupations exprimées par certaines ONG
sur la capacité des organisations de femmes à
attirer et à retenir les jeunes et à maintenir le
fonctionnement du mouvement des femmes.
Capacité restreinte de certaines ONG à
concevoir des stratégies d'activités de collecte
de fonds.
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Dimension
Institutionnalisation de la
violence à l'égard des
femmes
Facteurs favorables
Facteurs limitatifs/défavorables
La Constitution de 2011 consacre : 1)
les principes d'égalité hommesfemmes et d'intégrité physique,
établissant ainsi une base pour la
création d'un cadre juridique et de
politiques qui permettront de guider
les efforts pour mettre fin à la
violence à l'égard des femmes, et 2)
la suprématie des normes découlant
363
des conventions internationales.
Un processus de budgétisation
sensible au genre (BSG) avec un
accent sur la VÉFF existe au Maroc
et le pays aspire à devenir un modèle
d'excellence.
Une interprétation limitée de la Constitution peut
diminuer l'efficacité des mesures prises pour
lutter contre la VÉFF.
Absence d’une loi spécifique interdisant la
VÉFF.
La mise en œuvre effective des lois et des
stratégies de lutte contre la VÉFF est entravée
par des problèmes de capacité des
gouvernements et des prestataires de services,
la disponibilité des ressources, et la mentalité.
De manière générale, il semble que le Maroc soit bien placé pour faire avancer le processus de réforme. Les
points forts : l'existence d’engagements internationaux relatifs à l'égalité hommes-femmes, la volonté du
Roi, et la présence d'un mouvement de femmes expérimenté. Malgré ces points forts, les lacunes dans le
leadership du gouvernement national, les problèmes de capacité auxquels font face le mouvement des
femmes et les ONG et les capacités limitées des ressources humaines et financières au niveau régional/local
peuvent ralentir le processus de changement et éventuellement poser des limites importantes à la pérennité
des résultats.
4.3
Question stratégique n° 2 : Enseignements tirés des
forces et faiblesses dans la gestion de la
programmation sur l'élimination de la violence à
l’égard des femmes et des filles
Cette section présente les résultats de l'évaluation sur la question d'évaluation n° 2 : Au Maroc, quelles ont
été et sont actuellement les forces et les faiblesses d'ONU Femmes et les enseignements tirés de ses
prédécesseurs en vue de la planification, de la mise en œuvre, du suivi et de l'évaluation de leur travail sur
l'élimination de la violence à l’égard des femmes et des filles ?
La plupart, voire toutes les observations suivantes continuent d'influer sur les travaux en cours d'ONU
Femmes dans ses efforts d'élimination de la violence à l'égard des femmes et des filles.
363
Préambule de la Constitution de 2011 : « […] le Royaume du Maroc, État uni, totalement souverain, appartenant au Grand
Maghreb, réaffirme ce qui suit et s’y engage : […] accorder aux conventions internationales dûment ratifiées par lui, dans le cadre
des dispositions de la Constitution et de lois du Royaume, dans le respect de son identité nationale immuable, et dès la publication
de ces conventions, la primauté sur le droit interne du pays, et harmoniser en conséquence les dispositions pertinentes de sa
législation nationale. »; article 19 : « L’homme et la femme jouissent, à égalité, des droits et libertés à caractère civil, politique,
économique, social, culturel et environnemental, énoncés dans le présent Titre, et dans les autres dispositions de la Constitution,
ainsi que dans les conventions et pactes internationaux dûment ratifiés par le Maroc et ce, dans le respect des dispositions de la
Constitution, des constantes du Royaume et de ses lois. […] »
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Points forts
Les parties prenantes consultées ont souligné les points forts suivants de l'équipe du bureau sous-régional
d'UNIFEM au Maroc/bureau multipays Maghreb d’ONU Femmes dans la planification et la mise en œuvre
des interventions liées à l’élimination de la VÉFF au cours de la période évaluée.
Ensemble de compétences du personnel d'UNIFEM : Les intervenants des différents groupes
interviewés ont indiqué comme force organisationnelle les bonnes connaissances du contexte local chez le
personnel d'UNIFEM/ONU Femmes. Ils ont également souligné les capacités d'UNIFEM à coordonner les
différents intervenants, en particulier dans le cadre du programme Tamkine. Les parties prenantes, en
particulier les ONG, ont été particulièrement impressionnées par les compétences interpersonnelles et la
vision stratégique du représentant du bureau. Ils ont également souligné la capacité du staff à travailler avec
les différents intervenants comme une force, ce qui facilite le dialogue et la collaboration entre ceux-ci.
Mandat clair et valeurs : La plupart des répondants considèrent le mandat et les valeurs claires en matière
d'égalité hommes-femmes d'UNIFEM comme une force, car cette clarté rend plus facile pour les parties
prenantes l’identification des
organisations auxquelles
s'adresser pour obtenir réponse à
Le soutien octroyé par le bureau multipays Maghreb d’ONU
des questions d'égalité hommesFemmes a été très apprécié par les représentants des ONG et du
femmes.
gouvernement, car le bureau leur a offert la possibilité de partager
des expériences avec d'autres intervenants à des fins
Continuité du soutien et des
d'apprentissage. Certains représentants des gouvernements ont
partenariats : Le gouvernement
également apprécié la projection sous-régionale du bureau, car elle
et les ONG ont particulièrement
permet la comparaison des performances entre pays et exerce une
apprécié la continuité du
pression pour l'amélioration au niveau national.
partenariat qu'ONU Femmes a eu
avec eux. Contrairement à d'autres organismes ou donateurs qui fournissent un soutien à court terme,
UNIFEM a travaillé avec les mêmes organisations pendant une longue période, en les accompagnant dans
le processus de développement de leurs capacités et dans leurs efforts de lutte contre la VÉFF. Cela a
permis de développer une meilleure compréhension du rôle de chacun et une relation de travail basée sur le
respect mutuel et l'égalité.
Défis/Limites
Les données disponibles ont mis en évidence les défis suivants ou les limites aux capacités d'UNIFEM à
planifier, à mettre en œuvre, à faire le suivi et à évaluer son travail sur la violence à l'égard des femmes au
Maroc.
Le manque d'expertise sur la VÉFF et sur l'autonomisation économique dans le bureau sous-régional
d’UNIFEM au Maroc/bureau multipays Maghreb : Même si les répondants n'ont pas signalé un manque
d'expertise en matière de VÉFF dans le bureau sous-régional d’UNIFEM au Maroc/bureau multipays
Maghreb pour la période 2008-2011 limitant la réussite de la mise en œuvre des activités menées, plusieurs
l'ont mentionné comme un défi à venir. Compte tenu des progrès réalisés et de l'amélioration des
connaissances sur la VÉFF entre les intervenants, la demande d'expertise sur la violence fondée sur le genre
est susceptible d'augmenter, tout comme les attentes des partenaires pour qu’ONU Femmes réponde à cette
demande accrue d’expertise. Selon le personnel d'ONU Femmes, le développement d’une expertise dans
l'autonomisation économique est également nécessaire, maintenant qu’il s’agit d’une priorité de l'Agence.
Personnel restreint : Compte tenu de la portée régionale du bureau sous-régional d’UNIFEM au
Maroc/bureau multipays Maghreb, la taille du personnel a été jugée trop petite par des personnes y
travaillant. Ils ont fait remarquer que son représentant pays avait un double mandat : celui de représentant
pays, et celui de spécialiste du programme, avec des responsabilités de contrôle de la qualité pour
l'ensemble des programmes. La charge de travail est très lourde.
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Bureaucratisation croissante des procédures : Si les représentants des ONG et d'ONU Femmes ont
apprécié la flexibilité d'UNIFEM en ce qui concerne la production de rapports et le décaissement, ils
soulignent une bureaucratisation accrue des procédures d'ONU Femmes dans l'octroi de financement. Les
nouvelles exigences en matière de rapport et de décaissement ont été perçues comme problématiques et
contreproductives pour les efforts de plaidoyer. Le plaidoyer est une activité très sensible au facteur temps,
et nécessite à cet effet une plus grande flexibilité sur les plans de la production de rapports et du
décaissement.
Suivi et évaluation : Le personnel d'ONU Femmes a identifié le suivi et l'évaluation de son travail comme
une faiblesse. Cela a été en grande partie attribuable au manque de capacités du personnel, une situation qui
a été partiellement corrigée.
Le recours aux individus en tant que points focaux: UNIFEM a travaillé avec ses partenaires (du
gouvernement et des agences des Nations Unies) à travers des points focaux (c’est-à-dire des délégués
nommés par leurs entités). Cependant, à cause de la rotation de ce personnel, certains répondants ont
considéré cette approche comme un obstacle potentiel à la pérennité et à l'efficacité des réalisations d'ONU
Femmes.
Implications pour ONU Femmes
Comme nous l'expliquons plus en détail à la section 4.4 ci-après, la plupart, sinon la totalité, des
observations antérieures sur les points forts et les faiblesses organisationnelles continuent à influencer le
travail actuel d'ONU Femmes sur l’élimination de la violence à l'égard des femmes et des filles. ONU
Femmes peut s'appuyer sur la réputation et l'expérience d'UNIFEM dans les travaux sur l’élimination de la
VÉFF, et sur les liens établis avec des intervenants du gouvernement, les OSC et le mouvement des
femmes. La capacité d'ONU Femmes à maintenir le rôle joué par UNIFEM au Maroc dans le travail de
l'égalité hommes-femmes et l’élimination de la VÉFF dépendra aussi de la capacité et de la crédibilité de
son personnel, et en particulier de ses prochains représentants pays. Néanmoins, des faiblesses
organisationnelles de l’Agence restent à régler, et sont susceptibles de continuer à affecter le travail d'ONU
Femmes jusqu'à ce qu'elles soient prises en compte. La bureaucratisation croissante des procédures est
susceptible d'affaiblir la capacité d'ONU Femmes à appuyer le travail de plaidoyer des OSC, qui a été
reconnu par tous les intervenants comme un catalyseur essentiel pour les efforts d'élimination de la VÉFF
au Maroc.
4.4
Question stratégique n° 3 : Positionnement
stratégique d'ONU Femmes
Cette partie présente les résultats de l'évaluation au Maroc sur la question d'évaluation n° 3 : Dans quelle
mesure ONU Femmes s'est-elle stratégiquement positionnée de façon à mieux prévenir et répondre à la
violence à l’égard des femmes et des filles dans des contextes mondial,364 régional et national ? Le
positionnement stratégique d'ONU Femmes sur les questions de VÉFF au Maroc est fortement influencé
par les forces et les faiblesses organisationnelles décrites à la section 4.3, et par des facteurs contextuels
énumérés au chapitre 2 du présent rapport.
Facteurs contextuels
Le positionnement stratégique d'ONU Femmes dans le futur apparaît être influencé par des facteurs
externes et internes. En ce qui concerne les premiers, les processus de réforme en cours au Maroc, la
nouvelle Constitution, le retrait des réserves sur la CÉDEF, l’adoption de son Protocole facultatif, et le vif
engagement public de Sa Majesté le Roi Mohammed VI dans l'égalité hommes-femmes ont créé un climat
propice à ONU Femmes dans le soutien des efforts pour mettre fin à la VÉFF dans le pays. Le besoin de
364
L'accent ici est le positionnement d'ONU Femmes dans les contextes régional et national.
juin 2013
29
continuer à soutenir les efforts nationaux de lutte contre la VÉFF dans la région, étant donné ses taux élevés
seront également susceptibles d'influencer le positionnement stratégique actuel et futur d’ONU Femmes au
Maroc en matière d’élimination de la VÉFF. De plus, le type d’interprétation qui sera donnée aux articles
de la Constitution par les autorités nationales et la mesure dans laquelle le dialogue sur les droits de la
femme et l'égalité hommes-femmes au Maroc sera maintenu ouvert par le gouvernement représentent
d’autres facteurs externes qui pourraient jouer un rôle dans le positionnement stratégique d’ONU Femmes
au Maroc. En ce qui concerne les facteurs internes, il dépendra de la capacité du bureau multipays Maghreb
d’assurer à ses partenaires le soutien nécessaire et adéquat (en termes de ressources humaines, d’accès à la
connaissance spécialisée sur la VÉFF, d’opportunités d’échange au niveau régional et international, et de
flexibilité des modalités de soutien).
Les progrès effectués dans la définition et l'opérationnalisation du mandat d'ONU
Femmes
Dans l'ensemble, ONU Femmes semble être bien positionnée pour continuer à soutenir les efforts des
partenaires nationaux dans l'élimination de la violence à l'égard des femmes et des filles au Maroc. ONU
Femmes peut s'appuyer sur l'expérience d'UNIFEM et sur sa bonne réputation dans son travail connexe sur
l’élimination de la VÉFF. Son mandat clair et sa très bonne relation avec le mouvement des femmes, mais
aussi avec les ONG, les gouvernements et d'autres organismes des Nations Unies placent ONU Femmes
dans une position unique pour travailler sur l’élimination de la VÉFF dans le pays. Cependant, afin de
rendre son mandat opérationnel, ONU Femmes a à relever les défis suivants :

En matière de fonctionnement opérationnel, il n'est pas clair dans quelle mesure ONU Femmes
aura accès à des connaissances spécialisées (en français) à l’interne ou à l’externe pour aider les
partenaires nationaux dans le travail afférent à l’élimination de la VÉFF. Les intervenants ont des
attentes élevées concernant la capacité d'ONU Femmes à jouer un rôle de pôle de connaissances sur
les questions de VÉFF. Un juste équilibre devra être trouvé entre l'appui aux actions stratégiques
(c’est-à-dire entre plaidoyer et influence politique) et les actions de proximité (par exemple, la
prestation de services), et le lien entre ces deux types d'actions devra être facilité pour catalyser les
processus de changement.

En ce qui concerne son rôle de coordination entre les agences sur la thématique de la VÉFF, le
positionnement stratégique d'ONU Femmes dépend aussi des ressources disponibles pour mobiliser
d'autres agences des Nations Unies sur celle-ci et de l'existence de mécanismes pour qu’ONU
Femmes puisse promouvoir la redevabilité des agences des Nations Unies pour l’élimination de la
VÉFF et, de manière plus générale, la promotion de l'égalité hommes-femmes.
juin 2013
30
5.
Suggestions
À partir des données recueillies pour l'étude de cas du Maroc, l'équipe d'évaluation propose les suggestions
suivantes à l'intention du bureau multipays Maghreb d’ONU Femmes et au siège d'ONU Femmes.
Contributions aux résultats
Le bureau multipays Maghreb d'ONU Femmes pourrait :
52) Augmenter les occasions de partager l'expérience avec d'autres intervenants de la région et à
l'international : le gouvernement et les représentants des ONG, qui ont beaucoup apprécié les
occasions d'apprendre de l'expérience des autres acquise dans les différentes régions, ont demandé
encore plus d'échanges avec d'autres intervenants au niveau régional et international.
53) Continuer à renforcer les capacités des OSC pour assurer leur viabilité organisationnelle : le
soutien aux OSC devrait se concentrer sur les capacités à lever des fonds auprès des donateurs
autres qu'ONU Femmes, et à veiller au renouvellement des membres.
54) Travailler avec les chefs religieux : Compte tenu de l'importance de la religion au Maroc, ONU
Femmes devrait inclure les leaders religieux dans les interventions qu'elle soutient ou qu’elle
finance. L'expérience des organisations comme la fondation Ytto montre l'importance de travailler
avec les chefs religieux comme acteurs de changement.
55) Renforcer l'approche préventive : étant donné le large soutien aux efforts d'élimination de la
VÉFF, ONU Femmes doit continuer à travailler sur les changements d'attitudes et de
comportements auprès de la population. Outre le fait de travailler avec les ONG et le Ministère de
la Solidarité, de la Femme, de la Famille et du Développement Social sur des activités de
sensibilisation, ONU Femmes devrait explorer l'idée d’intégrer des notions de VÉFF dans les
programmes scolaires et universitaires.
56) Adapter son travail au processus de territorialisation : ONU Femmes et d'autres agences des
Nations Unies et donateurs devraient profiter du processus de territorialisation en cours au Maroc
pour s'assurer que les politiques, les actions et les structures visant l'élimination de la VÉFF soient
décentralisées au niveau régional, provincial et communautaire.
Forces et faiblesses de l'organisation
57) Modifier son approche de travail auprès de points focaux et privilégier plutôt une approche de
collaboration en unités au sein des organisations faisant l'objet du soutien. Le roulement du
personnel sera moins susceptible de limiter la pérennité des résultats, et l'institutionnalisation des
résultats sera plus probable.
58) Renforcer les systèmes de production de rapports sur les résultats et les enseignements,
notamment à travers le renforcement de ses capacités de suivi et d'évaluation afin de répertorier les
contributions aux résultats et les enseignements de manière plus systématique.
juin 2013
31
Le siège d'ONU Femmes pourrait :
59) Veiller à ce que les ressources humaines du bureau multipays Maghreb soient adéquates afin de
mener à bien un travail stratégique sur la VÉFF et améliorer les capacités de suivi et d'évaluation
(S & E) au niveau des pays. Ceci inclut : la mise à disposition d’expertise technique dans le
domaine de la violence, de l’accès à la justice, de la prévention et de la sensibilisation ; la mise à
disposition d’analyses et de données sur la violence fondée sur le genre dans les langues officielles
accessibles dans cette région francophone ; et le renforcement des capacités des équipes pays à
travers l’échange avec d’autres pays et le transfert d’expérience.
60) Veiller à ce que les procédures administratives facilitent le travail effectué au niveau des pays.
Plus précisément, ONU Femmes devrait veiller à ce que les changements dans ses procédures
administratives (décaissement ou production de rapports, par exemple) ne gênent en rien les
travaux de soutien et de financement.
Positionnement stratégique d’ONU Femmes
61) Continuer à sensibiliser les agences de l'ONU : la nécessité de poursuivre les activités de
sensibilisation a été reconnue comme un aspect important du positionnement stratégique d'ONU
Femmes au Maroc. La résistance ou la négligence d'intégrer l'égalité hommes-femmes dans la
planification et la mise en œuvre de programmes ont été identifiées comme des problèmes de
capacité qui perdurent encore dans certaines agences des Nations Unies. Les activités de
sensibilisation ciblant les agences de l'ONU devraient porter sur la thématique spécifique de la
VÉFF afin de s'assurer que l'ensemble du système des Nations Unies continue de coordonner le
travail autour de ce thème, et qu'il continue d'exercer des pressions sur le gouvernement pour
appuyer le programme de réformes tout en assurant le respect de la législation nationale à la
CÉDEF et à son protocole facultatif.
Le siège d’ONU Femmes pourrait :
62) Veiller à ce que les ressources humaines et financières soient suffisantes pour le bureau
multipays Maghreb d'ONU Femmes pour qu’il puisse continuer à exercer son rôle de coordination
et de travail stratégique sur la VÉFF au niveau sous-régional et pour permettre un meilleur accès
du personnel du bureau multipays Maghreb à l'expertise internationale sur la VÉFF.
juin 2013
32
6.
Implications pour l'évaluation globale
Cette partie résume brièvement les principales observations de l'étude de cas pour le Maroc, susceptibles
d'aider à éclairer l'évaluation globale, en particulier en ce qui concerne l'intention de l'évaluation d'élaborer
une ou plusieurs théories du changement pour le travail d’ONU Femmes sur la VÉFF. Les observations
sont réparties selon les trois dimensions du mandat d’ONU Femmes.
Tableau 6.1 Implications pour l'évaluation globale
Dimension
Opérationnelle
Stratégies/Types
d'interventions
d’ONU Femmes au Maroc
 Fournir un appui financier et




365
technique pour aider à
renforcer la capacité des
partenaires nationaux, en
particulier le mécanisme
national sur l’égalité hommesfemmes et les organisations
de femmes.
Fournir un accès à des
informations pertinentes, à
des outils et à des possibilités
de partage — un élément clé
du travail de renforcement des
capacités.
Faciliter le mécanisme de
dialogue entre les
intervenants
gouvernementaux et non
gouvernementaux au niveau
national.
Soutenir les partenaires
nationaux dans la collecte,
l'analyse et l'utilisation des
données sur le contexte
national de la VÉFF pour
pouvoir élaborer des
politiques fondées sur des
données probantes.
Soutenir les partenaires
nationaux dans l'élaboration
de programmes de formation
spécifiques au contexte pour
les prestataires de services
Liens avec les résultats
décrits dans le cadre
logique reconstruit des
résultats (voir encadré)
Les interventions
d’UNIFEM sur la VÉFF au
Maroc ont abordé, à des
degrés divers, les quatre
résultats opérationnels à
court/moyen terme et les
trois résultats à
moyen/long terme décrits
dans le modèle des
résultats préliminaires en
annexe du rapport initial
365
d'évaluation .
Cependant, le modèle des
résultats ne fait pas de
distinction entre résultats
à court terme et résultats
à moyen terme, alors que
les interventions
d’UNIFEM au Maroc ont
produits aussi des
résultats à court terme qui
sont importants pour
comprendre le processus
de changement entrepris
dans le pays.
Les interventions
d’UNIFEM ont ciblé la
violence domestique.
D’autres formes de
violence (par exemple
violence économique et
mariages forcés) ont aussi
été abordées, mais dans
une moindre mesure.
UNIFEM a adopté une
approche
multidimensionnelle pour
l’élimination de la VÉFF à
travers son intégration aux
interventions en matière
d’autonomisation
économique des femmes.
Le renforcement des
Hypothèses sous-jacentes
implicites au travail sur la
VÉF au Maroc et ses
risques
 Le travail sur l'élimination






de la VÉFF exige la
capacité à travailler avec le
gouvernement et les OSC,
et la capacité de faciliter le
dialogue entre les deux
parties.
La réforme de la législation
nationale est une
réalisation clé sur laquelle
se fondent d'autres
réalisations de la lutte
contre la VÉFF.
Le Ministère de
l'Éducation, le Ministère de
la Justice et les leaders
religieux sont des acteurs
nationaux clés du
changement en faveur de
l’élimination de la VÉFF.
Une pression continue sur
le gouvernement pour
amender la législation
repose sur la capacité du
mouvement des femmes à
s'allier avec d'autres OSC.
Changer les attitudes et les
comportements exige une
sensibilisation auprès des
ministères et des hauts
décideurs.
Pour être efficace, la
réponse nationale à la
VÉFF doit être coordonnée
et multisectorielle.
Les connaissances
individuelles et collectives
sur les questions de VÉFF
sont à la base du travail
d'influence des normes
sociales et institutionnelles,
et sont fondamentales pour
Voir l'annexe VII
juin 2013
33
Dimension
Stratégies/Types
d'interventions
d’ONU Femmes au Maroc
Liens avec les résultats
décrits dans le cadre
logique reconstruit des
résultats (voir encadré)
Hypothèses sous-jacentes
implicites au travail sur la
VÉF au Maroc et ses
risques
capacités des ONG et du
gouvernement apparait
être l’approche la plus
utilisée par UNIFEM au
Maroc pour travailler sur
la thématique de la VÉFF.
introduire des
changements de
comportement.
 L'accès à des données
fiables sur l'ampleur et les
formes de VÉFF améliore
l'efficacité du travail de
plaidoyer auprès du
gouvernement.
Coordination des
agences des
Nations Unies
Coordination au sein du
programme Tamkine par une
approche multisectorielle pour
lutter contre la VÉFF.
 Contribution à
 La coordination inter-
l'amélioration de la
coordination à court
terme par des activités
d'élimination de la
VÉFF et des
investissements du
système des Nations
Unies.
 Aucune contribution
visible de renforcement
durable dans le temps
de la responsabilité du
système des Nations
Unies à cet égard.
agences exige de fortes
ressources financières et
humaines.
 Sensibiliser davantage les
agences de l'ONU.
 Il y a concurrence entre les
agences de l'ONU pour
obtenir des ressources
limitées.
 Le renforcement des
capacités des OSC en
matière de suivi et
d'évaluation des politiques
publiques est un élément
clé pour continuer à
demander des comptes au
gouvernement.
Normative
 Promouvoir les connaissances
Recourir à la CÉDEF pour
guider le travail d'ONU
Femmes et des
partenaires nationaux.
et le recours à la CÉDEF
auprès des intervenants
nationaux.
 Faciliter la participation à des
forums mondiaux, à la
Commission de la condition
de la femme (CCF) pour
alimenter ou soutenir des
processus nationaux.
juin 2013
34
Annexe I.
Groupe national de référence
Amina Slimani Ministère de Solidarité de la Femme de la Famille et du Développement Social
Samira Elmarzgioui, Ministère de la Santé
Représentant du CNDH
Kamal Alami, ONUSIDA
Représentant de l'UNFPA
Représentant de l'UNDP
juin 2013
35
Annexe II.
Liste des documents
consultés
Documents d’UNIFEM/ONU Femmes

Conseil d'administration de l'Entité des Nations Unies pour l'égalité des sexes et l'autonomisation
des femmes. « Structure régionale : incidences administratives, budgétaires et financières et plan de
mise en œuvre. Rapport de la Secrétaire générale adjointe/Directrice exécutive ». 18 septembre
2012. Disponible à l'adresse : http://www.unwomen.org/wp-content/uploads/2012/10/UNW-201210-Regional-Architecture-FR.pdf

UNIFEM. « Sub-Regional Strategy for North Africa, 2008-2010 ».

ONU Femmes. “Inventory of United Nations system activities to prevent and eliminate violence
against
women.”
February
2012.
Disponible
à
l'adresse :
http://www.un.org/womenwatch/daw/vaw/v-inventory.htm
Documents relatifs aux projets d'UNIFEM/ONU Femmes et du Fonds d'affectation
spéciale des Nations Unies pour l’élimination de la violence à l’égard des femmes

« Appui aux Sections de la famille pour la mise en œuvre du Code de la famille (2007-2009) » :
document de projet, rapport final, rapport d’evaluation, rapport final à l’Agence catalane de
coopération au développement.

« Appui à l’application du Code de la famille par la facilitation de l’accès des femmes aux services
de la justice (2010-2013) » : document de projet, rapport de l’atelier sir le suivi de l’état
d’avancement, rapport annuel octobre 2010- décembre 2011, rapport de la réunion du Comité de
Pilotage.

« Promotion des droits humains des femmes et de leur rôle dans le processus de justice
transitionnelle au Maroc (2007-2009) » : document de projet, rapport final, rapport d’évaluation,
étude « Gender and transitional justice: modelling the Moroccan experience ».

« Renforcement de la mise en réseau et du plaidoyer des Centres d’écoute pour les femmes
victimes de violence au Maroc et en Algérie (2010-2012) » : document de projet, rapport
d’activités 2eme semestre, rapport final mars 2010-août 2012, étude « Les violence fondées sur le
genre au Maroc : Mariage des mineurs et partage des biens acquis pendant le mariage : lacunes du
texte et difficultés de l’application ».

Réseau National des Centres d’écoute des Femmes Victimes de Violences. « Les violences fondées
sur le genre au Maroc: Mariage des mineures et partage des biens acquis pendant le mariage :
lacunes du texte et difficultés de l’application ». Mai, 2012.

« Égalité de genre en matière successorale (2008- 2011) » : document de projet, rapport final mai
2008-février 2011.

« Plaidoyer pour l'institutionnalisation des foyers d'accueil pour femmes victimes de
violence (2009-2010) » : document de projet, rapport narratif final 2009-2010, étude de faisabilité
et précision des approches pour l’hébergement des femmes victimes de violences.

« Mise en œuvre sur le terrain de l'enquête sur la prévalence de la violence à l'égard des femmes au
Maroc (2009) » : document de projet.
juin 2013
36

Haut-Commissariat au Plan. « La violence à l’égard des femmes au Maroc 2009. Rapport de
synthèse ».

« Formation du personnel d’enquête pour la collecte de données relatives à la violence à l’égard
des femmes (2009) » : document de projet.

« Évolution et expérimentation du SIC gendérisé (Version V3gbis) dans le but de le répandre
(2010-2011) » : termes de référence, présentation « Évolution et Expérimentation du SIC
Gendérisé. Expérimentation dans 5 communes de la province d’Ouarzazate »

« Programme Global UNIFEM sur la budgétisation sensible au genre, Phase III | Composante
Maroc : « Le processus budgétaire national reflète de manière effective l’égalité de genre » (20102012) » : document de projet, Revue stratégique du Programme « Budgétisation Sensible au Genre
au Maroc – Phase III ».

« Printemps de la Dignité: Pour une législation pénale qui protège les femmes contre la
discrimination et la violence (2010-2011) » : document de projet, rapport final avril 2010-décembre
2011.

« Pour une autonomie économique des FVV (2009) » : document de projet, rapport narratif, juillet
2009-juin 2010.

« Mise en place d’un Fonds d’appui aux Activités Génératrices de Revenu Économique pour
Femmes Victimes de Violences Fondées sur le Genre (FVVFG) » : document de projet, rapport
narratif et financier.

« Campagne nationale pour la régularisation des mariages (2010) » : document de projet, rapport
narratif, septembre 2010.

« Caravanes sociales et campagnes nationales pour l’application du Code de la famille et contre les
mariages des mineurs (2011) » : document de projet, rapport final des Fonds d’appui aux
programmes ONUSIDA 2010 /2011.

« Renforcement de compétences des ONG de défense des droits des femmes au Maroc dans la lutte
contre le VIH/sida et le plaidoyer pour le suivi des engagements nationaux dans le domaine (20102011 » : document de projet, rapport narratif.

« Appui à la prévention de la violence fondée sur le genre auprès des femmes professionnelles du
sexe bénéficiant des prestations de l’ALCS (2010-2011) » : document de projet, rapport d’activités
juin 2010-mai 2011.

« Une approche globale de la lutte contre la traite des êtres humains en Jordanie, en Égypte et au
Maroc (2009-2012) » : document de projet.

« Défense des droits des mères célibataires et des petites filles employées comme domestiques
(2008-2011) » : document de projet, rapports de progression annuels 2009, 2010 et 2011.
Autres documents

Virginie Dayde et Hicham Hantar. « Rapport d’évaluation finale du programme conjoint
multisectoriel de lutte contre les violences fondées sur le genre par l’autonomisation des femmes et
des filles au Maroc – Tamkine »,11 juillet 2012.

Présentation « TAMKINE - Programme conjoint multisectoriel de lutte contre les violences
fondées sur le genre par l’autonomisation des femmes et des filles au Maroc »

Nations Unies. Plan-cadre des Nations Unies au Maroc 2007-2011. Bilan commun de pays,mars
2006
juin 2013
37

Ministère de l’Économie et des Finances du Royaume du Maroc. « Projet de loi de finances pour
l’année budgétaire 2012. Rapport sur le budget genre. »

Conseil national des droits de l’homme, Vers la mise en place de l’Autorité pour la parité et la lutte
contre toutes formes de discrimination, Novembre 2011. Disponible à l'adresse:
www.ccdh.org.ma/IMG/pdf/RapportVFNum.pdf

Khalid Lahsika, Baptiste Buob, « Rapport d’évaluation du projet Promotion des droits de la
personne des femmes et de leur rôle dans le processus de justice transitionnelle au Maroc,», janvier
2010

Royaume du Maroc. Secrétariat Général du Gouvernement. « La Constitution. Edition 2011 ».
Série « Documentation juridique marocaine ». Disponible à l'adresse:
www.sgg.gov.ma/constitution_2011_Fr.pdf

Onfp, Enquête nationale sur la violence à l’égard des femmes en Tunisie. Décembre 2010.
Disponible à l'adresse: http://sgdatabase.unwomen.org/uploads/Enquete%20sur%20VAW%20%202010.pdf

Commission économique pour l’Afrique. African Women’s Report 2009. Disponible ici :
http://www.uneca.org/eca_resources/publications/books/awr/AWR09_FIN.pdf

UN Committee on Economic, Social and Cultural Rights (CESCR), Consideration of reports
submitted by States parties under articles 16 and 17 of the Covenant : concluding observations of
the Committee on Economic, Social and Cultural Rights : Algeria, 7 June
2010, E/C.12/DZA/CO/4, disponible ici:
http://www.unhcr.org/refworld/docid/4c1739922.html [accédé le 27 février 2013]

Comité pour l’élimination de la discrimination à l’égard des femmes. Quarante-troisième session
19 janvier-6 février 2009. Observations finales du Comité pour l’élimination de la discrimination à
l’égard des femmes : Jamahiriya arabe libyenne. Disponible ici : http://daccess-ddsny.un.org/doc/UNDOC/GEN/N09/227/85/PDF/N0922785.pdf?OpenElement

Comité pour l’élimination de la discrimination à l’égard des femmes. Trente-huitième session 14
mai-1er juin 2007. Observations finales du Comité pour l’élimination de la discrimination à l’égard
des femmes : Mauritanie. Disponible ici : http://daccess-ddsny.un.org/doc/UNDOC/GEN/N07/375/85/PDF/N0737585.pdf?OpenElement

Comité pour l’élimination de la discrimination à l’égard des femmes. Quarantième session 14
janvier-1er février 2008. Observations finales du Comité pour l’élimination de la discrimination à
l’égard des femmes : Maroc. Disponible ici :
http://www2.ohchr.org/english/bodies/cedaw/docs/CEDAW.C.MAR.CO.4_fr.pdf

Conseil des droits de l’homme. Groupe de travail sur l’Examen périodique universel. Treizième
session. Genève, 21 mai–4 juin 2011. Rapport national présenté conformément au paragraphe 5 de
l’annexe à la résolution 16/21 du Conseil des droits de l’homme.

Association Démocratique des Femmes du Maroc. Rapport des ONG de défense des droits des
femmes au Maroc au titre du 2e Examen Périodique Universel (EPU). Soumis au Haut
Commissariat des droits de l’Homme. Disponible ici :
http://lib.ohchr.org/HRBodies/UPR/Documents/session13/MA/ADFM_UPR_MAR_S13_2012_As
sociationDemocratiquedesFemmesduMaroc_F.pdf

PNUD, Rapport sur le développement humain 2011, voir:
http://hdr.undp.org/en/reports/global/hdr2011/
juin 2013
38

Youssef Belal. Gender and and transitional justice: modelling the Moroccan experience. Octobre
2009.

Mise en œuvre de la CEDAW 3ème et 4ème rapports périodiques. Présenté par Madame Nouzha
Skalli Ministre du Développement Social, de la famille et de la Solidarité Genève Jeudi 24 Janvier
2008. Disponible ici : www2.ohchr.org/english/bodies/cedaw/docs/statement/40Morocco_fr.ppt

Promouvoir l’égalité entre les hommes et les femmes dans la région euro-méditerranéenne (20082011) -Programme financé par l’Union Européenne. « Rapport National d’Analyse de la Situation:
Droits humains des femmes et Égalité hommes-femmes – Maroc ».
Sites Web

Dites NON – Tous UNiS pour mettre fin à la violence contre les femmes :
http://saynotoviolence.org/sites/default/files/FR_Who_Says_No_Govs.pdf

ONU Femmes : http://www.unifem.org/about/contact.html

Division for the Advancement of Women. Convention on the Elimination of All Forms of
Discrimination against Women: http://www.un.org/womenwatch/daw/cedaw/reservations.htm

« Institutions sociales et Égalité homme-femme » pour 2012 et 2009:
http://genderindex.org/country/

http://www.larousse.fr/encyclopedie/autre-region/Maghreb/131068

La Banque mondiale 2011: http://data.worldbank.org/country/

Banque mondiale 2011: http://donnees.banquemondiale.org/pays/maroc

Site web de l’Instance Équité et Réconciliation. Disponible ici :
http://www.ier.ma/article.php3?id_article=147

« Institutions sociales et Égalité homme-femme » sur l'Algérie, à l'adresse:
http://genderindex.org/country/algeria
juin 2013
39
Annexe III. Parties prenantes consultées
Organisation
Rôle/Poste
Mode de consultation
ONU Femmes
Bureau multipays Maghreb
Représentant
Entretien individuel
Coordinateur de programme/Accès
des femmes à la justice
Point focal pour l'évaluation
Analyste de programmes — VÉF
Entretien de groupe
Jeune experte associée — VÉF
Entretien de groupe
Responsable Reporting &
Communication
Entretien de groupe
Partenaires/Parties prenantes au Maroc
Équipe de pays des Nations Unies (UNTC)/Autres entités des Nations Unies
UNICEF
Chef de projet
Entretien de groupe
OIT
Coordonnatrice du Programme
international pour l'abolition du travail
des enfants
Entretien de groupe
ONUSIDA
Directeur pays
Entretien de groupe
FNUAP
Point focal — Genre
Entretien de groupe
PNUD
Gouvernance et droits de la personne
Conseiller de programme
Entretien de groupe
Conseil national des droits de la
personne
Chef de service — Collectif Droits
Entretien de groupe
Conseil national des droits de la
personne
Chef de division
communautaire
Ministère de la Solidarité, de la
Femme, de la Famille et du
Développement Social
Chef de service — Direction des
affaires féminines
Ministère de la Solidarité, de la
Femme, de la Famille et du
Développement social
Ancienne ministre
Haut Commissariat au Plan
Ingénieur en chef — Direction des
Statistiques
Ministère des Affaires étrangères et
de la Coopération
Chef de service — Agences de
financement du développement
Entretien de groupe
Ministère des Affaires étrangères et
de la Coopération
Chef de division — Systèmes des NU
pour le développement
Entretien de groupe
Ministère de la Santé
Service de la violence à l'égard des
femmes et des enfants
Ministère de la Justice et des Libertés
Magistrat chargé des affaires
Gouvernement national
—
Réparation
Entretien de groupe
juin 2013
40
Organisation
Rôle/Poste
Mode de consultation
féminines et de l'enfant
Ministère de la Justice et des Libertés
Directeur, Département des études,
de la Coopération et de la
Modernisation
Ministère de l'Économie et des
Finances
Directeur des Études
Prévision financière
et
de
la
ONG/Organisations de la société civile
Coalition du Printemps de la Dignité
Coordonnateur
Association Marocaine de lutte contre
la Violence à l'Égard des Femmes
(AMVÉF)
Membre
Association Initiatives pour la
Protection des Droits de la Femme
(IPDF)
Président
Fondation Ytto
Président et Trésorier
Entretien de groupe
Association Démocratique des
Femmes du Maroc (ADMF)
Membre du Comité exécutif
INSAF
Président et Chef de la Division
Mère-Enfant
Entretien de groupe
Fundación Euroarabe
Académicienne/anthropologue
Expert indépendant
Expert
Expert indépendant
Expert
Parlement
Députée
Médias
Journaliste
Autres répondants
juin 2013
41
Annexe IV. Méthodologie de l'étude de
cas et matrice d'évaluation
But
Comme stipulé dans le rapport initial, le but de ces visites de terrain dans les pays est de fournir des aperçus
détaillés et en contexte des deux volets « passé » et « futur » de l'évaluation. Le premier comprend la
collecte d'informations sur ce qui a été accompli à ce jour sur le plan de l'EVÉF, les contributions des
prédécesseurs d’ONU Femmes aux avancées dans le pays concerné (notamment les questions concernant
les liens entre les travaux opérationnels spécifiques accomplis dans le pays, la coordination et le travail
normatif régional/mondial) ; ainsi que les enseignements propres au contexte. La deuxième perspective
passera en revue les facteurs qui déterminent le positionnement stratégique actuel d’ONU Femmes en
matière de travaux connexes sur les VÉF dans chaque pays, et étudie les besoins et les attentes du personnel
du bureau du pays (ou de la région) et des autres agences de l'ONU par exemple, en matière d'orientation et
de soutien/financement.
Approche
Les études de cas ont pour but de contribuer aux sous-questions d'évaluation secondaires spécifiques,
comme indiqué dans la matrice d'évaluation du rapport initial. La répartition précise des axes de recherche
qui s'applique à chaque pays, et ses contributions respectives sont indiquées ci-après. Ces éléments ont été
utilisés pour élaborer les instruments de collecte de données.
Discussion OSC
Entretiens ou discussion
Entretiens ONU CMT
Entretiens ONU Femmes
Observation
Registres nationaux
QUESTIONS D'ÉVALUATION
Entretiens Gouv. national
Études de cas
MÉTHODES/
AXES DE RECHERCHE
1) Pour la période 2008-2011, quelle a été la contribution à l'élimination de la violence à l'égard des femmes des entités
antérieures à ONU Femmes ? Quels sont les enseignements ?
1.1 Au cours de la période 2008-2011, comment les facteurs contextuels et
environnementaux ont-ils affecté ou influencé le travail sur la VÉFF des
prédécesseurs d’ONU Femmes ?
1.2 Que dire de la pertinence et de la réactivité du travail des prédécesseurs
d’ONU Femmes dans le cadre des engagements et priorités mondiaux,
régionaux et nationaux, y compris au sein de l'ONU ?
1.3 Quelles ont été les grandes contributions des entités prédécesseurs
d’ONU Femmes dans l'atteinte des résultats nationaux sur la prévention de
la violence à l'égard des femmes et l'expansion de l'accès aux services à
l'échelle nationale ?
1.5 Quels ont été les grandes contributions des entités prédécesseurs
d’ONU Femmes aux résultats en ce qui concerne la coordination des efforts
connexes à l'EVÉF à l'intérieur (et à l'extérieur) du système de l'ONU ?
1.6 Dans quelle mesure les résultats au niveau mondial, régional et national
réalisés avec le soutien des prédécesseurs d’ONU Femmes sont
√
√
√
√
√
√
√
√
√
√
√
√
√
√
√
√
√
√
√
√
√
juin 2013
42
Discussion OSC
Entretiens ou discussion
Entretiens ONU CMT
Entretiens ONU Femmes
Observation
Registres nationaux
QUESTIONS D'ÉVALUATION
Entretiens Gouv. national
Études de cas
MÉTHODES/
AXES DE RECHERCHE
susceptibles de perdurer au fil du temps ?
1.7 Quelles sont les implications des résultats obtenus sur le plan de l'EVÉF
√
√
√
√
à ce jour et les enseignements vis-à-vis du travail actuel et futur d’ONU
Femmes dans ce domaine ?
2. Quels ont été et quels sont les points forts et les faiblesses organisationnelles d’ ONU Femmes et les enseignements de ses
prédécesseurs dans la planification, la mise en œuvre, le suivi et l'évaluation de leurs travaux réalisés en matière d'EVÉF ?
2.1 Quels ont été les points forts et les faiblesses organisationnelles √
√
√
√
stratégiques des prédécesseurs d’ONU Femmes dans la conception, la mise
en œuvre, le suivi et l'évaluation des interventions liées à l'EVÉF ?
3. Dans quelle mesure l' ONU Femmes s'est-elle stratégiquement positionnée de façon à bien prévenir et intervenir face aux
VÉF dans des contextes mondial, régional et national ?
3.1 Quels ont été les principales évolutions dans les contextes, mondial, √
√
√
√
régional, national et de l'ONU depuis la création d’ONU Femmes, et en quoi
ont-elles (positivement ou négativement) influencé la capacité d’ONU
Femmes à remplir ses rôles normatif, opérationnel et de coordination par
rapport à l'EVÉFF ?
3.2 Quels progrès ONU Femmes a-t-elle accomplis à ce jour dans la √
√
√
définition claire et l'exécution de son mandat en matière d'EVÉF en
conformité avec ses dimensions normatives, opérationnelles, et de
coordination ?
juin 2013
43
Annexe V.
Mandat /
Dimension
Soutien
normatif
Intergouvernem
ental
M o d è l e d e r é s u l t a t s p r é l i m i n a i r e s 366
Résultats à court et à moyen terme
Les États membres prennent des décisions éclairées et
s’engagent à prendre des mesures à tous les niveaux pour
éliminer la VÉFF
Les États membres s’entendent sur des normes mondiales,
des politiques et des normes en vue d’éliminer la VÉFF
La législation et les politiques sont élaborées, adoptées et
mises en oeuvre pour répondre et prévenir la VÉFF
Les défenseurs de l’égalité influencent les politiques, les
mesures et les budgets pour lutter contre la VÉFF
Opérationnel
Résultat à moyen-long terme
Les normes institutionnelles et
sociétales et les comportements
soutiennent l’élimination de la
VÉFF
Le gouvernement et les
prestataires de services sont
responsables devant les femmes
et les filles de la prévention, la
protection et la lutte contre la
VÉFF
Les femmes et les filles victimes
de VÉFF ont accès aux services
nécessaires lorsqu’elles en font
la demande
Les autorités nationales et locales augmentent le nombre
et / ou la qualité des services aux victimes de VÉFF
Sensibilisation accrue et soutien public pour l’élimination
de la VÉFF de la part des décideurs, des leaders et
membres de la communauté
Coordinatio
n entre les
agences de
l’ONU à
l’échelle du
système
des Nations
Unies
366
Le système des Nations Unies comprend mieux et réalise des
activités et des investissements pour l’élimination de la VÉFF
Responsabilité accrue du système des Nations Unies pour les
efforts en matière d’élimination de la VÉFF
Les bonnes pratiques en matière
d’élimination de la VÉFF font
partie intégrante à/ sont
intégrées dans l’ensemble des
approches de développement du
système des Nations Unies
Impact
Les femmes et
les filles sont
affrachies de
toutes les
formes de
violence sexiste
et des menaces
de violence
Les victimes de
VÉFF sont prises
en charge et
aidées dans la
réalisation d’une
vie épanouie
Une plus grande cohérence et
responsabilité du travail du
systemè des Nations Unies sur
l’élimination de la VÉFF
Tel qu’indiqué dans le rapport initial d'évaluation.
août 2013
44
Annexe VI. Description des projets
appuyés par UNIFEM pendant la période
2008-2011
Appui direct au projet
Appui aux Sections de la famille pour la mise en œuvre du Code de la famille (2007-2009), contribution
d’UNIFEM de 782 802 $, sur un budget total de 1 678 486 $ : Dans le cadre de la réforme du Code de la
famille, le projet, mené par le Ministère de la Justice (MJ) avec l’appui d’UNIFEM, du PNUD, de
l’UNICEF et de l’Agence catalane de coopération au développement avait pout but d’améliorer la qualité
de la réponse aux justiciables et d’assurer une juste application du Code qui puisse respecter l’intégrité des
droits humains des femmes et ainsi combattre toutes les formes de violences à l’égard des femmes.
Les résultats attendus étaient : 1) la mise en place d’un mécanisme de médiation et de conciliation dans les
Sections de la famille participantes; 2) l’établissement d’un fonds pilote d’aide aux enfants des femmes
divorcées permettant de faciliter l’obtention de la pension alimentaire; 3) l’accord de la part des différents
acteurs sur une proposition de révision du mode de fixation des pensions alimentaires et du calcul du
partage des biens ; 4) la mise en place d’un système de gestion informatisé de l’information dans les
Sections de la famille; et 5) la mise en place d’une cellule de formation spécialisée dans la formation
continue pour les cadres du Ministère et les Sections de la famille.
Selon le rapport d’évaluation du projet (CREADH 2011), plusieurs réalisations ont été atteintes. D’abord,
la création d’un comité technique a joué un rôle crucial pour la bonne maitrise du projet. Ensuite, le
recrutement de travailleuses sociales s’est révélé une réelle valeur ajoutée dans la mise en œuvre du Code
de la famille et la fonction d’assistance sociale a été généralisée aux autres Sections de la famille. De plus,
les études réalisées et les actions de partage/diffusion ont permis de développer un nombre important
d’outils de travail appropriés pour la réalisation des produits du projet. En outre, un plan de formation a été
élaboré par la cellule de formation spécialisée en formation continue. En somme, on note que le projet a
créé une dynamique positive au sein du Ministère de la Justice et des sections pilotes et que les autres
sections non couvertes devraient bénéficier des leçons tirées de cette expérience pilote.
Appui à l’application du Code de la famille par la facilitation de l’accès des femmes aux services de la
justice (2010-2013) contribution d’UNIFEM/ONU Femmes non spécifiée : En suivi au projet précédent
(Appui aux Sections de la famille pour la mise en œuvre du Code de la famille), UNIFEM/ONU Femmes
est en train d’appuyer le Ministère de la Justice et le Ministère de la Solidarité, de la Femme, de la Famille
et du Développement social (MDSFS) dans le renforcement de la gouvernance démocratique du Ministère
de la Justice pour améliorer sa prestation de services en direction des justiciables, notamment les femmes,
dans le cadre de l’application du Code de la famille. Les résultats attendus sont : 1) des mécanismes
institutionnels consolidés, mis en place, fonctionnels et efficaces avec un système de suivi et d’évaluation
de la mise en œuvre du Code et assurant une rétroaction au niveau des politiques des différents niveaux; 2)
un meilleur accès aux services des Sections de la famille pilotes et les informations et les procédures en
matière d’application du Code de la famille pour les femmes.
août 2013
Dans le rapport de la réunion du comité de pilotage (octobre 2011), on note les progrès suivants vers les
résultats escomptés: la réalisation de plusieurs études; la formation de différents acteurs (personnel
ministériel, juges, greffiers, etc.) à travers plusieurs ateliers; l’appui au développement d’un plan d’action
pour la Division de la justice de la famille, des mineurs et des incapables en matière de mise en œuvre du
Code de la famille intégrant la stratégie de collecte de données; l’appui au travail de recherche du MDSFS;
et l’élaboration d’un guide pratique d'intervention sociale en matière de justice familiale.
Promotion des droits humains des femmes et de leur rôle dans le processus de justice transitionnelle au
Maroc (2007-2009) contribution d’UNIFEM non spécifiée, sur un budget total de 572 021 $ : Ce projet,
confié au Conseil consultatif des droits de l’homme (CCDH), s'inscrivait dans la mise en œuvre des
recommandations de l’Instance équité et réconciliation (IER) prenant en compte la question du genre et des
droits humains des femmes. Le projet se donnait comme objectif d'analyser le rôle et la contribution des
femmes au processus démocratique dans le but de renforcer leur participation dans les domaines de la
réconciliation et de la résolution de conflit. Les principaux résultats attendus étaient : 1) la prise en compte
des droits des femmes dans le processus de réparation, de réconciliation et de préservation de la mémoire;
et 2) une plus grande conscience publique des droits humains des femmes.
Selon le rapport narratif et le rapport d’évaluation final, le projet a atteint les résultats fixés. En effet, le
renforcement des capacités institutionnelles des cadres du CCDH et l’appui donné à ses efforts
d’intégration de la dimension de genre ont mené à la création de la Commission « genre » à l’émergence
d’un nouvel état d’esprit au sein du CCDH. De plus, les actions de préservation de mémoire ont rempli leur
fonction symbolique et créé de nouvelles dynamiques de reconnaissance de la contribution des femmes au
processus de démocratisation. Mieux encore, le projet a produit des résultats inattendus, non programmés,
et entraîné un effet boule de neige autour de ses actions. Entre autres, l’opinion publique internationale a
été informée grâce au film documentaire « Women on the Frontline ». Des projets sensibles au genre ont
aussi été développés et exécutés dans les sites où les trois projets pilotes ont été mis en œuvre, comme un
foyer d’accueil de jeunes filles à Imilchil par exemple. On note également l’initiation d’un débat au niveau
de la société civile de certaines régions pour la création d’un réseau de plaidoyer pour le développement
des régions ayant connu la marginalisation.
Renforcement de la mise en réseau et du plaidoyer des Centres d’écoute pour les femmes victimes de
violence au Maroc et en Algérie (2010-2012) contribution d’UNIFEM/ONU Femmes non spécifiée, sur un
budget total de 386 665 $367 : Le projet, mis en œuvre par l’Association Démocratique des Femmes du
Maroc (ADFM) et le Centre d’Information et de documentation sur les Droits de l’Enfants et de la Femme
(CIDDEF) avec le support d’UNIFEM/ONU Femmes, prévoyait de contribuer à l’amélioration de la prise
en charge des femmes victimes de violence par le renforcement du pouvoir des femmes et la sensibilisation
des institutions publiques au phénomène des violences fondées sur le genre dans les régions de RabatCasablanca-Kenitra, Oriental, Nord, Centre Fez-Meknès, Sud-Marrakech, Sud est –Errachidia. Les résultats
attendus étaient : 1) l’amélioration de la prise en charge des femmes victimes de violence à travers le
renforcement du pouvoir des femmes et la sensibilisation des institutions publiques au phénomène des
VFG; 2) le renforcement du pouvoir des femmes et leur autonomisation pour revendiquer et faire prévaloir
leurs droits; et 3) la mobilisation des acteurs au niveau local pour la prise en charge des femmes victimes de
violence.
367
Les montants ont été calculés en utilisant le taux de change de 1 $= EUR 0,7098 (taux change en vigueur le 21 Janvier 2010). La
requête soumise à UNIFEM/ONU Femmes établit le budget total à EUR 274 455.
août 2013
Selon le rapport consulté, les résultats du présent projet ont permis de consolider les résultats obtenus lors
de la première phase d’appui au réseau ANARUZ, notamment en ce qui concerne la continuité des efforts
et des actions des membres du réseau ANARUZ pour institutionnaliser la lutte contre les violences à
l’égard des femmes et des filles (LCVFF). En particulier, le rapport final indique que cette seconde phase a
permis de renforcer les liens entre les membres du réseau via l’organisation de 26 rencontres/ateliers de
débats et de concertation. Ensuite, la production des 3e et 4e rapports sur les violences fondées sur le genre
a marqué le lancement d’une campagne de plaidoyer au niveau local et régional en faveur de
l’institutionnalisation de la LCVFF et la mise en place de chaînes de prise en charge de femmes victimes de
violences. Finalement, la visibilité du réseau ANARUZ s’est améliorée grâce à l’organisation de séminaires
d’information et de communication au niveau national et régional, permettant une meilleure sensibilisation
sur les violences fondées sur le genre auprès des acteurs locaux.
Financement de base
Égalité de genre en matière successorale (2008- 2011) contribution d’UNIFEM (et budget total) de 66 584
$368 : Ce projet, mis en œuvre par l’Association Démocratique des Femmes du Maroc (ADFM), s’inscrit
dans la continuité d’une première phase complétée entre 2006 et 2008. Dans sa globalité, le projet visait
l’égalité successorale. En particulier, la deuxième phase du projet avait pour objectifs d’approfondir
l’argumentaire, de mettre en place et de renforcer la coalition, et d’élaborer une stratégie de plaidoyer. Lors
de l’élaboration du projet, les résultats attendus ont été identifiés comme étant : 1) une réflexion
approfondie autour d’un argumentaire en faveur de l’égalité successorale; 2) la création d’une coalition
d’ONG de droits des femmes et de droits humains pour la mobilisation et le plaidoyer de l’égalité de genre
en matière successorale; et 3) l’élaboration de la stratégie du plaidoyer de la coalition.
Les principaux résultats obtenus indiqués dans le rapport final ont été la tenue d’ateliers de discussion
portant sur l’égalité successorale et la réalisation d’une étude sociologique sur les pratiques de
contournement de la loi successorale. De plus, les capacités des membres de l’ADFM et de certaines ONG
ont été renforcées. Enfin, un recueil rassemblant différentes études et réflexions sur la thématique dans ses
différents aspects a été publié et diffusé en vue de susciter un débat social autour de la question.
Le programme conjoint multisectoriel de lutte contre les violences fondées sur le genre par
l’autonomisation des femmes et des filles au Maroc (Tamkine) (2008 -2012) contribution d’UNIFEM de
2 443 155 $, sur un budget total de 8 400 000 $ : Ce programme est le fruit de la collaboration de 13
départements ministériels, 8 organismes des Nations Unies, et 60 organisations de la société civile. Le
programme conjoint avait deux axes stratégiques : i) l’appui à l’institutionnalisation du genre et des droits
humains des femmes dans les politiques nationales et programmes de développement, et ii) la
territorialisation des politiques nationales sensibles au genre dans 6 régions identifiées avec la mise en
place: (a) de chaînes multisectorielles de prise en charge des femmes et des filles violentées ; (b) d’espaces
multifonctionnels pour l’autonomisation des femmes et des filles et (c) de campagnes de sensibilisation et
d’éducation pour une culture égalitaire.
368
Le montant a été calculé en utilisant le taux de change de 1 $ = MAD 7.3892 (taux change en vigueur le 19 Mai 2008). La
requête soumise établi la contribution d’UNIFEM à MAD 492000.
août 2013
Dans le cadre du programme Tamkine, UNIFEM a appuyé les projets suivants :369

Plaidoyer pour l'institutionnalisation des foyers d'accueil pour femmes victimes de violence (20092010) contribution d’UNIFEM non spécifiée, sur un budget total de 43 394 $370 : Ce projet,
entrepris par l’Association Marocaine de lutte contre la Violence à l’Égard des Femmes (AMVÉF),
visait le développement de mesures pour la création de centres d’accueil pour les femmes victimes
de violence en capitalisant sur les recommandations des ONG féminines et des centres pour les
femmes survivantes de violence. Le résultat attendu était la création d’un cadre de référence pour
l’accueil et l’hébergement des femmes survivantes de violence à être utilisé dans la prise de
décision des agents impliqués dans le combat de la violence fondée sur le genre. À cet effet,
l’ « Étude de faisabilité et précision des approches pour l’hébergement des femmes victimes de
violences » a été conduite. Celle-ci a entre autres permis un partage de connaissance sur les notions
et les définitions de la violence faite aux femmes. Elle a aussi permis le partage du savoir en
matière d’approches d’interventions auprès des femmes et de lutte contre les violences aux
femmes.

Mise en œuvre sur le terrain de l'enquête sur la prévalence de la violence à l'égard des femmes au
Maroc (2009) contribution d’UNIFEM de 207 044 $, sur un budget total de 597 464 $371 : La mise
en œuvre de l’enquête avait pour objectif de collecter des données viables et détaillées pour les
diffuser dans le cadre de la revue des politiques publiques en matière de lutte contre la violence
faite aux femmes et aux jeunes filles au Maroc. Le résultat final se manifeste sous la forme d'un
rapport détaillé sur la prévalence et la nature de la violence à l'égard des femmes au Maroc, mais
aussi de données sociodémographiques générales sur les femmes marocaines.

Formation du personnel d’enquête pour la collecte de données relatives à la violence à l’égard des
femmes (2009) contribution d’UNIFEM et budget total de 29 018 $ : Dans le cadre de l’enquête
nationale sur la prévalence de la violence à l’égard des femmes réalisée par le Haut-Commissariat
au Plan, les enquêteurs ont été formés à la conduite d’entretiens pour qu’ils soient menés avec une
méthodologie adaptée à ce sujet. Cette formation visait à sensibiliser les enquêteurs au genre et à la
méthode sociologique pour le recueil des données nécessaires à l’enquête.

Évolution et expérimentation du SIC gendérisé (Version V3gbis) dans le but de le répandre (20102011) contribution d’UNIFEM non spécifiée, sur un budget de 111 221 $372 : Ce projet avait pour
but de déployer, dans 6 régions pilotes, un système d’information communale (SIC) qui soit
sensible au genre pour récolter de l’information sur des indicateurs pertinents et qui puisse orienter
la programmation et l’allocation des ressources pour favoriser l’autonomisation des femmes et des
jeunes filles et l’élimination de la violence fondée sur le genre. Le projet a finalement couvert 5
communes, soit Ouisselsate, Siroua, Iznagen, Taznakhte et Ghassate, et les résultats ont été
analysés et les superviseurs de l’équipe et leaders communaux ont été formés sur l’analyse des
résultats des enquêtes. Enfin, ces résultats ont été présentés lors d’un atelier au niveau local.
369
L’appui d’UNIFEM dans le cadre du programme Tamkine a également consisté à financer l’étude menée par l’ADFM sur le
Code pénal (17 000 $), le soutien au Ministère de la Solidarité, de la Femme, de la Famille et du Développement social (570 000
$), une enquête sur l’utilisation du temps (575 000 $), des activités de production, de communication et de sensibilisation (80 000
$) et l’opérationnalisation du processus de planification, de programmation et de budgétisation sensible au genre pour la lutte
contre les violences faites aux femmes et aux filles (375 000 $).
370
Le montant a été calculé en utilisant le taux de change de 1 $= MAD 7,9504 (taux de change en vigueur le 1 Juin 2009). La
requête soumise établit le budget total à MAD 345 000.
371
Le montant a été calculé en utilisant le taux de change de 1 $ = MAD 8,56 donné dans le document du projet.
372
Le montant a été calculé en utilisant le taux de change de 1 $= MAD 7.6289 (taux change en vigueur le 1 Juin 2009). La requête
soumise établi budget total à MAD 848 500.
août 2013

Programme Global UNIFEM sur la budgétisation sensible au genre, Phase III | Composante
Maroc : « Le processus budgétaire national reflète de manière effective l’égalité de genre » (20102012) contribution d’UNIFEM non spécifiée, sur un budget total de 840 089 $ : La composante
Maroc du programme budgétisation sensible au genre (BSG) Phase III d’UNIFEM qui s’inscrit
dans le cadre du programme Tamkine, visait la mobilisation des ressources en faveur de la lutte
contre la violence à l’égard des femmes. À ce titre, un lien étroit au niveau sectoriel avec les
départements qui interviennent dans ce domaine a été préconisé pour maximiser l’impact des
ressources disponibles. On attendait du processus que la formulation du budget national intègre de
manière effective l’égalité de genre à travers : 1) l’application des approches alternatives et des
outils de la BSG de façon rigoureuse; et 2) l’amélioration de l’appui politique, technique et
financier aux efforts de BSG. D’après la revue stratégique du programme (décembre 2012), l'une
des principales réalisations de la phase III du programme BSG a été la poursuite de l’amélioration
en termes quantitatif et qualitatif du contenu du Rapport Budget Genre. De plus, le programme a
mené à la création du Collectif des ONG en faveur de la BSG, ce qui a renforcé le processus
participatif. Cependant, la mise en œuvre de deux initiatives dans le cadre de l’intégration de la
programmation budgétaire axée sur les résultats et sensible au genre a été retardée du fait des
élections et ensuite du changement de gouvernement. Enfin, dans le cadre du programme global, un
système de gestion des connaissances a été créé, ce qui a permis de diffuser l’expérience marocaine
en matière de BSG.

Mise en place d’un Fonds d’appui aux Activités Génératrices de Revenu Économique pour
Femmes Victimes de Violences Fondées sur le Genre (FVVFG) : Consultations et Outils (20102011) contribution d’UNIFEM/ONU Femmes de 42 199 $, sur un budget total de 62 621 $373 :
Dans le but de démarrer un fonds spécifique d’appui aux AGRE, ce projet, porté par l’IPDF et
faisant suite au projet antérieur, visait à rapprocher les principaux acteurs régionaux pour le
développement d’une compréhension commune en matière de lutte contre la précarité par
l’autonomisation économique des FVVFG. De même, il proposait de renforcer les capacités
institutionnelles du centre multifonctionnel Batha pour l’autonomisation des femmes de l’IPDF
pour l’amélioration de l’efficacité du suivi et accompagnement des FVVFG et leur insertion
économique. Le projet prévoyait : 1) le développement d’une compréhension commune entre
l’IPDF et les principaux acteurs régionaux en matière de lutte contre la précarité par
l’autonomisation économique des FVVFG; 2) le développement des capacités des membres de
l’IPDF pour qu’ils puissent intervenir de façon efficace en matière de suivi et d’accompagnement
dans l’insertion économique.
Selon le rapport final et financier, des changements de connaissance ont été atteints suite à
l’ensemble des consultations, des tables rondes de concertation et de l’atelier de restitution, ainsi
les acteurs concernés ont maintenant une meilleure compréhension de la relation dangereuse entre
la violence à l’égard des femmes, la pauvreté et les pouvoirs des femmes. Les changements de
connaissance apparaissent dans : i) la proposition par les acteurs de faire partie de la chaîne des
services externe du centre Batha, ii) la proposition de mettre en place un comité impliquant
l’ensemble des acteurs afin d’aborder de manière globale et concertée le suivi de l’autonomisation
économique des entrepreneures potentielles, iii) l’élaboration d’un plan d’action concerté
impliquant état, société civile et secteur privé, et iv) la mise en place d’un mécanisme de
concertation. De plus, les connaissances des intervenants ont été enrichies. Ceux-ci maîtrisent
maintenant le contenu des outils.374
373
Les montants ont été calculés en utilisant le taux de change de 1 $= MAD 8.1772 (taux change en vigueur le 1 Octobre 2010).
La requête soumise à ONU Femmes établi la contribution d’ONU Femmes à MAD 345 070 et le budget total à MAD 512 070.
374
Suite à ce projet, le « fonds d’appui aux activités génératrices de revenu » a été créé. ONU Femmes a soutenu l’IPDF dans la
création de ce fonds pour la période 2011-2012, qui n’est pas prise en considération dans cette évaluation.
août 2013
Suite à ce projet, l’IPDF a demandé et obtenu du soutien additionnel d’ONU Femmes Bureau
multipays Maghreb pour l’opérationnalisation du fonds d’appui aux AGRE (appelé « Fonds
Attahadi ») et pour l’accompagnement des femmes victimes de violences basées sur le genre,
usagères du centre Batha, dans leur processus d'autonomisation psychosociale et économique.
Parmi les résultats les plus importants de ce troisième projet, le rapport final mentionne le
lancement du Fonds Attahadi, l’accompagnement psychologique, juridique, social et économique
de femmes victimes de violence fréquentant le Centre Batha, et l’identification par 21 femmes du
centre de leur projet d’AGRE qui sera financé par le fonds.
Printemps de la Dignité: Pour une législation pénale qui protège les femmes contre la discrimination et la
violence (2010-2011) contribution d’UNIFEM non spécifiée, sur un budget total de 31 434 $ : Ce projet,
mis en œuvre par l’ l’Association Démocratique des Femmes du Maroc (ADFM), voulait appuyer et
renforcer la Coalition Printemps de la Dignité pour lui permettre de mener à bien son plaidoyer en faveur
de la refonte de la législation pénale marocaine. Les résultats escomptés visaient deux niveaux, à savoir
l'interne et l’externe : 1) au niveau interne, il s'agissait particulièrement de renforcer la mise en place de la
coalition; 2) au niveau externe, on cherchait à faire connaître la coalition et présenter ses revendications aux
décideurs et à l’opinion publique.
Dans le rapport final, on note que les résultats les plus probants ont été la mise en place de la coalition,
comptant 22 associations membres, l’élaboration d’outils de travail (charte, règlement interne, stratégie,…)
et la finalisation du mémorandum. Ce mémorandum a été présenté aux ministères concernés par la réforme
du Code pénal. De plus, la stratégie de plaidoyer et de communication et l’argumentaire relatif aux thèmes
pouvant susciter un débat (viol conjugal, avortement, libertés individuelles) a été élaboré. En ce sens, un
travail de plaidoyer en amont et de concertation a été établi avec le Ministère de la Justice en vue d'intégrer
les revendications de la coalition dans le nouveau projet du Code pénal. Enfin, quatre assemblées générales
ont été tenues et des associations provenant de régions différentes ont été associées, à chaque fois, aux
comités de suivi élus.
Pour une autonomie économique des femmes victimes de violence (2009) contribution d’UNIFEM de 37
675 $, sur un budget total de 64 882 $375 : Ce projet, réalisé par l’association Initiatives pour la Protection
des Droits des Femmes (IPDF) dans le but de démarrer un centre multifonctionnel pour la Lutte contre la
violence fondée sur le Genre (Centre Batha)376, visait à contribuer à l’amélioration de la situation
économique des femmes et jeunes filles victimes de violences basées sur le genre et à l’autonomisation de
ces femmes par le renforcement de leurs capacités. Deux résultats étaient attendus par la mise en œuvre du
projet : 1) l’acquisition d’un métier pour 45 femmes bénéficiaires après avoir été outillées en techniques de
recherche active du travail, et la mise en place et la gestion d’activités génératrices de revenus et d’emploi
(AGRE); 2) l’appui aux intervenants pour qu’ils puissent intervenir de façon efficace, concertée et
complémentaire en matière de suivi et d’accompagnement dans l’insertion économique.
La réalisation du projet, selon le rapport narratif (IPDF, 2009), a permis aux femmes un meilleur accès à
l’information relative à la protection des violences fondées sur le genre via des ateliers d’information et
l’animation de groupes de discussion et un meilleur contrôle de leur vie en travaillant sur l’estime de soi et
leur automatisation. Trente femmes ont aussi eu accès à la formation professionnelle. On indique aussi le
démarrage du processus de mise en place d’AGRE pour l’ensemble des lauréates. Enfin, le projet a permis
au centre de renforcer les capacités de son équipe, de disposer d’outils de formation et de savoir-faire qui
pourra être utilisé ultérieurement dans le cadre des activités du centre.
375
Les montants ont été calculés en utilisant le taux de change de 1 $ = MAD 7.9629 (taux de change en vigueur le 1 Juillet 2009).
La requête soumise à UNIFEM établit la contribution d’UNIFEM à MAD 300 000 et le budget total à MAD 516 648.
376
Le centre vise à contribuer à l’amélioration des conditions de vie et de la situation des femmes victimes de violence par la mise
en place et l’institutionnalisation de services d’appui et d’accompagnement des usagères dans leur processus d’autonomisation via
une approche féministe globale
août 2013
Campagne nationale pour la régularisation des mariages (2010) contribution d’UNIFEM de 27 666 $377,
sur un budget total de 100 066 $ : La Fondation Ytto a organisé, avec le financement d’UNIFEM, des
campagnes dans les régions reculées du haut et moyen Atlas Marocain, ainsi que dans la banlieue et les
quartiers défavorisés de Casablanca, pour sensibiliser les femmes mariées seulement par la « fatiha » et
pour qui les droits ne sont pas reconnus par la législation marocaine. Le projet visait à faire appliquer au
niveau local les mesures du Code de la famille pour permettre aux femmes et aux enfants d’accéder à leurs
droits et pour lutter contre les violences fondées sur le genre en renforçant les capacités des femmes
vulnérables. Les résultats escomptés étaient : 1) le développement des connaissances des populations des
zones ciblées de leurs droits (juridiques, sociaux et économiques); 2) une aide apportée aux femmes pour
leur prise de conscience et l’acquisition de capacités pour s’organiser et revendiquer leurs droits; 3) la
récolte d’informations pertinentes pour la création de campagnes de sensibilisation auprès des décideurs; 4)
la sensibilisation des décideurs locaux aux droits des femmes et leur contribution à l’application du Code
de la famille.
Le rapport narratif (septembre 2010) indique, en effet, que les populations ont été informées et qu’il y a eu
un minimum de prise de conscience pour s’organiser et revendiquer. De plus, on constate que des actions
orientées vers l’amélioration de conditions de vie des femmes ont été entreprises dans les douars visités par
la caravane. Aussi, une coordination entre les associations locales et les autorités locales a été lancée pour
une sensibilisation permanente contre les mariages précoces, le travail des enfants et le danger que
constitue l’abandon scolaire. Enfin, on note le lancement d’une campagne de sensibilisation auprès des
différents intervenants portant sur la protection des droits des femmes, en particulier ceux des petites filles
victimes de mariages précoces et forcés.
Caravanes sociales et campagnes nationales pour l’application du Code de la famille et contre les
mariages des mineurs (2011) contribution d’UNIFEM/ONU Femmes de 28 398 $, sur un budget total de
265 925 $378 : Lancé par la Fondation Ytto, ce projet a permis d’organiser des campagnes de sensibilisation
auprès des femmes mariées dans la tradition de la « fatiha ». Les droits de ces femmes ne sont pas respectés
puisque leurs mariages ne sont pas reconnus par la loi marocaine. Le projet s’ajoute à d’autres projets
caravanes antérieurs de la Fondation Ytto qui ont mis à jour la condition de ces femmes et le taux très
important de ces mariages. Les objectifs du projet étaient de faire appliquer les mesures du Code de la
famille au niveau local et de lutter contre les violences que subissent les femmes en renforçant leur
connaissance de leurs droits et des protections garanties par la loi (mariages précoces et forcés, répudiation
et violation du droit à la scolarisation, la propriété et à la pension alimentaire). Les résultats attendus
étaient : 1) l’acquisition de connaissances et la sensibilisation sur les droits de la femme et de l’enfant, et
l’égalité et la citoyenneté des populations par les décideurs et intervenants locaux dans les zones rurales et
défavorisées du Royaume; et 2) l’application des mesures égalitaires du Code de la famille (interdiction de
la polygamie, l’âge du mariage, la pension alimentaire, l’abrogation de la répudiation, le partage des biens
accumulés lors du mariage en cas de divorce, etc.) dans les zones rurales et défavorisées du Royaume est
renforcée.
Selon le rapport narratif pour la période octobre 2011 – août 2012, le projet a atteint ses objectifs de
sensibilisation. Les femmes ont été informées de leurs droits. La fondation Ytto a également contribué aux
initiatives de coordination des droits des femmes par le biais d'intervenants locaux (par exemple, en
empêchant les mariages précoces et forcés).
377
Le montant de la contribution UNIFEM est calculé en utilisant le taux de change de 1 $ = MAD 7,5000 (calculé avec le budget
total donné en MAD et $).
378
Les montants ont été calculés en utilisant le taux de change de 1 $= MAD 8,1677 (taux change en vigueur le 17 Octobre 2011).
La requête soumise à ONU Femmes établi la contribution d’ONU Femmes à MAD 231 950 et le budget total à MAD 2 172 000.
août 2013
Renforcement de compétences des ONG de défense des droits des femmes au Maroc dans la lutte contre le
VIH/sida et le plaidoyer pour le suivi des engagements nationaux dans le domaine (2010-2011)
contribution d’UNIFEM/ONU Femmes non spécifiée, sur un budget total de 10 000 $ : Ce projet, mis en
œuvre par l’Association Troisième Millénaire pour le développement de l'action associative au Sud Est
(ATMDAS), visait à doter les ressources humaines des ONG de défense des droits des femmes au Maroc
de connaissances de bases sur le VIH et de compétences stratégiques en matière de négociation, de
plaidoyer et d’évaluation des progrès réalisés en termes de genre dans le contexte du VIH et de mettre en
réseau les différents acteurs (ONG féminines et ONG thématiques traitant du VIH/sida). Dans le cadre du
projet, il s’agissait d’atteindre les résultats suivants : 1) l’acquisition de connaissances de base chez les
formatrices du réseau ANARUZ au Maroc sur la gestion du risque de VIH dans la prise en charge des
femmes victimes de violence et sur l’impact que les inégalités de genre peuvent avoir sur l’épidémie; 2) la
préparation des formatrices du réseau ANARUZ à transmettre des connaissances stratégiques sur la
dimension genre du VIH/sida et le renforcement de leurs capacités en négociation et communication en vue
d’une participation active au sein des instances décisionnelles; et 3) le développement de liens d’échanges,
d’écoute et de partage entre les ONG féminines et ONG thématiques sida ainsi qu’une revue et un suivi des
engagements pris par le gouvernement marocain dans cette thématique.
Dans le rapport final, on note que ce projet a permis de former, pour la première fois, des femmes
écoutantes sur la thématique du VIH/sida, ce qui a renforcé leurs capacités et a développé leur conscience
pour intégrer de façon quotidienne cette approche dans ces activités d’appui aux femmes victimes des
violences. Les écoutantes sont maintenant en mesure de sensibiliser, d’orienter et d’accompagner les
femmes qui se présentent aux centres d’écoute et qui n’ont aucune information sur le VIH/sida. De plus, le
projet a influencé le réseau ANARUZ, qui commencera à intégrer dans la programmation de ses 52 centres
d’écoute la question de la lutte contre le VIH, en lien avec le travail que chaque centre développe en appui
aux femmes victimes des violences fondées sur le genre. Aussi le nouveau Plan Stratégique du réseau
ANARUZ institutionnalisera cette contribution à la riposte multisectorielle au VIH/sida au Maroc et les
prochains rapports annuels du réseau incluront des données relatives au VIH/sida.
Appui à la prévention de la violence fondée sur le genre auprès des femmes professionnelles du sexe
bénéficiant des prestations de l’ALCS (2010-2011) contribution d’UNIFEM/ONU Femmes non spécifiée,
sur un budget total de 29 201 $ : Ce projet, entrepris par l’Association de la lutte contre le sida (ALCS),
s’efforçait à prévenir la violence fondée sur le genre auprès des femmes professionnelles du sexe
bénéficiaires des prestations de l’ALCS et à assurer leur orientation vers les structures et départements
appropriés. Les résultats escomptés étaient : 1) d’assurer un large accès aux connaissances, à la prévention
des infections transmises sexuellement/sida liées à la violence au profit des femmes professionnelles du
sexe ; 2) d’informer les femmes professionnelles du sexe sur les risques de la violence auxquels elles sont
exposées et leurs capacités à y faire face; 3) d’orienter les bénéficiaires du projet victimes de violences vers
les structures et départements appropriés; 4) de renforcer le lien entre les ONG thématiques et les ONG
féminines; 5) de renforcer les capacités des intervenants du projet en matière d’information sur la violence
à l’égard des femmes et d’orientation , le cas échéant; et 6) de concevoir des outils d’information,
d’éducation et de communication.
Grâce à ce projet, le rapport d’activité constate que des outils de communication ont été conçus et produits
sur la thématique de la violence à l’égard des professionnelles du sexe et de sa relation étroite avec le risque
d’infection VIH/sida. En effet, un CD d’une durée de 11 minutes, des dépliants et des affiches ont été
réalisés passant des messages clés sur la violence, les moyens de prévention et d’orientation des femmes
qui en sont victimes. De plus, les deux formations prévues au profit des intervenants du projet ont été
réalisées. Enfin, durant la période du projet, sept séances thématiques au profit de 102 professionnelles du
sexe ont été réalisées concernant les droits de la femme et la violence fondée sur le genre à Agadir, Fès,
Bénimallal, Casablanca, Tanger, Rabat et Meknès et d’autres séances sont prévues.
août 2013
Fonds d'affectation spéciale des Nations Unies pour l'élimination de la violence à
l’égard des femmes
UNIFEM/ONU Femmes a également appuyé d'autres organisations bénéficiaires du Fonds d'affectation
spéciale des Nations Unies pour l’élimination de la violence à l'égard des femmes. Deux organisations au
Maroc ont reçu des fonds par ce biais :
Une approche globale de la lutte contre la traite des êtres humains en Jordanie, en Égypte et au Maroc
(2009-2012) contribution de 994 890 $ : ce projet a été mis en œuvre par plusieurs organisations non
gouvernementales (ONG) et leurs partenaires pour promouvoir la prévention et la protection des femmes à
risque de traite et des travailleurs domestiques, la récupération et le rapatriement des victimes, et la
criminalisation de la traite des personnes dans les pays-cibles. Cette initiative pilote a été la première du
genre à aborder le problème de la traite des êtres humains dans le monde arabe. Ce projet a été géré par le
bureau sous-régional d’UNIFEM à Amman (Jordanie).
Défense des droits des mères célibataires et des petites filles employées comme domestiques (2008-2011)
contribution d’UNIFEM non spécifiée, sur un budget total de 770 975 $ : Ce projet, mis en œuvre par
l'Institution Nationale de Solidarité avec les Femmes en Détresse (INSAF), visait à assurer la réinsertion
sociale et la protection des droits des mères célibataires et des filles mineures travaillant comme
domestiques. Les trois résultats attendus étaient : 1) d'avoir 80 pour cent des mères interceptées par
l'INSAF en vue d’une réinsertion professionnelle stable et digne dans la société, 2) de sensibiliser les
fonctionnaires ciblés aux recommandations de la société civile concernant les mères célibataires et les
enfants nés hors mariage, et 3) d'éradiquer l'exploitation du travail domestique des filles dans les zones
ciblées.
Selon le rapport final, depuis 2009, l'INSAF a pris en charge 519 mères en vue de leur développement
professionnel et personnel et de leur intégration dans un lieu de travail décent. En 2011, l'INSAF a récupéré
45 filles en situation d'exploitation, a assuré une formation sur les moyens de subsistance à 45 mères, et a
sensibilisé les dirigeants locaux sur les droits des enfants nés hors du mariage. Toujours en 2011, le
gouvernement a adopté une loi interdisant le travail des enfants pour les enfants de moins de 15 ans.
août 2013
Access to Services
Country Case Study: Mozambique
A c r o n y m s
August 2013
i
AECID
Spanish Agency for International Development Cooperation
AIDS
Acquired Immune Deficiency Syndrome
CEDAW
Convention on the Elimination of All Forms of Discrimination against Women
CSO
Civil Society Organization
CSW
GBV
GCG
Gender Coordination Group
GJT
Gender Joint Team
GRB
Gender-Responsive Budgeting
HDI
Human Development Index
HIV
Human Immunodeficiency Syndrome
HOPEM
Rede Homens Pela Mudança (Network of Men for Change)
IPV
Intimate Partner Violence
LeMuSiCa
Levanta-se mulher e siga o seu caminho (Women, Get Up and Follow Your Path)
M&E
NAFEZA
Núcleo das Associações Femininas da Zambezia (Centre of Women's Associations,
Zambezia)
NGO
Non-Governmental Organizations
OHCHR
Office of the High Commissioner for Human Rights
RENAMO
Resistência Nacional Moçambicana
SADC
Southern Africa Development Community
SGBV
Sexual and Gender-Based violence
SIGI
Social Institutions and Gender Index
UN Trust
Fund
Secretary-General’s Trust Fund for Ending Violence Against Women
UN-Women
UNDAF
UNDP
UNFPA
UNICEF
UNIFEM
VAW
WHO
World Health Organization
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ii
Contents
1.
2.
3.
Introduction
1.1
1.2
1.3
1.4
1
1
1
2
Context 3
2.1
2.2
2.3
Subregional
3
National - Mozambique 4
8
Profile of UNIFEM-supported VAW programming in Mozambique (2008-2011)
8
3.1
3.2
3.3
3.4
4.
1
Background
Methodology
Limitations
Report structure
Overview 8
VAW programming in Mozambique
9
Inter-agency coordination and collaboration 11
Findings
8
13
4.1
Overview 13
4.2
Contributions to results and related lessons learned 13
4.2.1
General
13
4.2.2
Relevance 13
4.2.3
UN-Women’s operational mandate 14
4.2.4
UN-Women’s intergovernmental mandate 20
4.2.5
UN-Women’s coordination mandate
21
4.2.6
22
4.3
23
4.4
25
5.
Recommendations
26
6.
29
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Exhibits
29
Appendices
31
44
47
Appendix VIII Notes from the Theory of Change Session
48
41
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iv
Introduction
1.
1.1
Background
Violence Against Women and Expand Access to Services. The objectives of the evaluation were: i) to
capture key results and lessons learned from the contributions of UN-Women’s four predecessor entities379
from 2008 to 2011 which UN-Women has taken forward to support countries in preventing VAW and
expanding access to related services, and ii) to analyze how well UN-Women is strategically positioned to
implement its mandate of normative, operational and coordination work in the area of VAW.380
This study summarizes key observations and findings on the work of UN-Women and its predecessor, the
United Nations Development Fund for Women (UNIFEM), to end violence against women and girls in
Mozambique, and its contributions to results. The draft study will be revised with feedback from UNWomen and the Mozambique national reference group (see Appendix I).
1.2
Methodology
Data collection was guided by the methodology and evaluation matrix presented in Appendix II and
structured according to the three strategic evaluation questions and related sub-questions outlined in the
evaluation Inception Report. The key data sources for the country case study were documents (see
Appendix III for a list of reviewed documents), in-person interviews during the country visit to
Mozambique (14-18 January 2013) and telephone interviews. A total of 28 stakeholders were consulted for
this case study and are listed in Appendix IV.
To guide the overall evaluation, the evaluation team in consultation with the evaluation reference group
reconstructed a preliminary results logic as a first step towards developing a more detailed corporate theory
of change for UN-Women’s work on EVAW (see Appendix VIII). This results logic was used in the design
of interview protocols and was the basis of efforts to understand the rationale for the types of initiatives
being implemented in each country and the results they sought to achieve. In Mozambique, this was
complemented by discussions with UN-Women staff during the country visit – to start identifying expected
results and elicit underlying assumptions leading from short/ medium to long-term results with the ultimate
aim of reviewing the draft corporate results logic and elicit feedback regarding its relevance to UNWomen’s work in Mozambique (see Appendix VI).
The country case study is not an evaluation of the country’s performance on eliminating violence against
women and girls or an assessment of the full spectrum of UNIFEM or UN-Women's work over the years.
1.3
Limitations
The following limitations should be considered in reading the Mozambique country case study:

Availability of project documents: The UN-Women office in Mozambique did not provide
complete documentation (project proposal, final/progress reports/evaluations) of the interventions
undertaken in the thematic area of ending violence against women (EVAW). Some documents
379
The Division of the Advancement of Women (DAW), the United Nations International Research and Training
Institute for the Advancement of Women (INSTRAW), the United Nations Development Fund for Women (UNIFEM)
and the Office of the Special Advisor on Gender Issues and the Advancement of Women (OSAGI).
380 More information on evaluation objectives and methodology is available in the evaluation Inception Report
(November 2012).
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(such as the report of the Secretary-General’s UNiTE to End Violence against Women campaign)
were received two days before the start of the field mission, so it was difficult to corroborate or
expand on this information in the field as documented data was still being analyzed.

Availability of identified stakeholders: Some stakeholders were not available during the country
visit, especially those from the government as January is the annual leave season in
Mozambique.381 Interviews were conducted only with representatives from the Ministry of Women
and Social Action and the Ministry of Home Affairs.

Interviews were not conducted with women survivors of violence at the shelters run by Nhamai and
LeMuSiCa or who had access to the special units on violence in the police stations (gabinetes).
This was due to a combination of factors, including limited time availability (travel being
particularly challenging at the time of the mission because of the weather conditions), difficulties in
identifying women survivors who had accessed the services of the special units and concerns over
the risk of causing a disruption in the recovery of targeted women. As a result it was not possible to
compare the perceptions of other stakeholders regarding UNIFEM’s contribution to the
improvement of critical services for women survivors with the views of current users of these
services.382
1.4
Report structure
This case study has six sections. Section 2 provides a summary of the contexts for UNIFEM work on
violence against women and girls during the period 2008-2011. Section 3 presents a profile of UNIFEMmanaged or supported programming from 2008-2011. Section 4 provides the evaluation findings on the
three strategic evaluation questions. Section 5 presents suggestions for UN-Women which emerged from
the Mozambique case study. Finally, Section 6 summarizes observations relevant to the aim of the overall
evaluation which is to develop a theory of change for UN-Women’s work on VAW.
381
Given the overall timeline of the evaluation it was not possible to conduct the site visit at a later date.
382
It is also not clear whether and to what extent current users of services such as shelters could have commented on
changes in the quality or accessibility of existing services over time.
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2.
2.1
Context
Subregional
While the Southern Africa and Indian Ocean States differ in terms of socio-economic and human
development, they share common challenges with regards to women’s human rights and gender equality.
According to the World Bank’s classification, the subregion comprises upper middle-income countries
(Angola, Botswana, Mauritius, Namibia, the Seychelles, South Africa and Swaziland), lower-middle
income countries (the Comoros, Lesotho and Zambia), and low-income countries (Madagascar,
Mozambique, Malawi and Zimbabwe). The wide variation in economic development is also found in the
levels of poverty and human development. With regard to poverty ratios, Madagascar has the highest
percentage of people (81.3 per cent in 2010) earning less than $1.25 a day.383 In contrast, in the Seychelles
less than 0.3 per cent of the population earned the same amount (2007 data).384 According to the 2011
Human Development Index (HDI),385 Mozambique has the lowest rating in the region (0.322 ranking it
184th out of 187 countries), followed by Zimbabwe (0.378 ranking it 173 out of 187 countries). The
Seychelles has the highest HDI score (0.773) of the subregion (and all of Africa), it 52 out of 187
countries.386
The Office of the High Commissioner for Human Rights (OHCHR) recognizes several challenges faced by
the subregion when it comes to human rights including: independence of the judiciary; access to justice;
prison conditions; freedom of expression and assembly; economic, social and cultural rights; land issues;
migration and xenophobia; impunity; and sexual and gender-based violence (SGBV). 387 The subregion also
has the highest prevalence rate of HIV and AIDS in the world. Information on the prevalence of violence in
the subregion is scarce, yet the data available suggest it is a widespread problem. In the 2004
Demographics and Health Survey published by UN-Women, the National Statistical Office of Malawi
reported that 22.1 per cent of women had experienced physical violence and 13.4 per cent sexual violence
by an intimate partner (IPV). In the 2007 Demographics and Health Survey, the Central Statistical Office of
Zambia reported higher rates of 46.5 per cent for physical IPV and 18.9 per cent for sexual IPV.388
Nonetheless, some States in the subregion are making encouraging development and human rights
achievements, thus giving hope for the overall improvement of the human rights situation. At the regional
level, the Southern Africa Development Community (SADC) has undertaken several initiatives to
strengthen Member States’ commitments and capacity to ensure gender equality and promote women’s
empowerment through adoption of the Protocol on the African Charter on Human and Peoples Rights on
Women’s Rights in Africa (2003) and the SADC Gender and Development Protocol (2008).389 The latter,
in particular, includes six specific targets to be attained by 2015 390 and aims to eliminate gender-based
383
Unless otherwise indicated currencies refer to United States dollars.
384
Available from http://povertydata.worldbank.org/poverty/home/.
385
The HDI is a composite index measuring average achievement in three basic dimensions of human development-a
long and healthy life, knowledge and a decent standard of living.
386
Available from http://hdr.undp.org/en/media/HDR_2011_EN_Table1.pdf.
387
Available from http://www.ohchr.org/EN/Countries/AfricaRegion/Pages/SouthernAfricaSummary10.aspx.
388
UN-Women, Violence against Women Prevalence Data: Surveys by Country (as of March 2011). Available from
http://www.endvawnow.org/uploads/browser/files/vaw_prevalence_matrix_15april_2011.pdf.
389
The protocol was signed and adopted in August 2008 by 13 of the 15 Member States (Botswana and Mauritius did
not sign) and ratified by 11 Member States. Available from http://www.sadc.int/issues/gender/.
390
The targets are: i) enact and enforce legislation prohibiting all forms of GBV; ii) ensure that the GBV laws provide
for the comprehensive testing, treatment and care of survivors of sexual assault; iii) review and reform their criminal
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3
violence (GBV) at every level. While progress has been made in the subregion, with several countries
adopting laws for the prevention, protection and response of violence against women and girls,
implementation of the laws has been slow. Cultural and traditional norms and behaviours are also factors
which have hindered reducing cases of violence against women and girls.391
2.2
National - Mozambique
After gaining independence from Portugal in 1975, Mozambique was devastated by 16 years of civil war
involving its two main political groups: Frente de Libertacao de Mocambique (FRELIMO) and Resistência
Nacional Moçambicana (RENAMO). Mozambique has been scarred by the civil war (which ended in
October 1992), political strife and environmental degradation due to natural catastrophe’s including floods,
droughts and cyclones.
Mozambique is a low-income country.392 It has the lowest HDI rating in the region, and 54 per cent of its
23 million inhabitants live on less than $1.25 a day.
Gender equality and violence against women and girls
In terms of global ratings on gender equality, Mozambique is near average for the region. It was ranked 39
out of 86 on the 2012 social institutions and gender index (SIGI)393 and 125 out of 146 on the 2011 gender
inequality index.394
Mozambique has made progress towards gender equality and ending violence against women and girls
since the 1990s, due to the advocacy efforts of the Organization of Mozambican Women (the women’s
section of Frente de Libertacao de Mocambique) and the women’s movement, with the support of United
Nations entities. Examples of recent progress made in this regard include:

Mozambique signing the Beijing Declaration and Platform for Action (1995); ratifying the
Convention on the Elimination of all forms of Violence against Women (CEDAW) (1997); signing
of the Gender Declaration of the Head of States of SADC (1998); adopting the Protocol for the
laws and procedures applicable to cases of sexual offences and GBV; iv) enact and adopt specific legislative
provisions to prevent human trafficking and provide holistic serviced to victims, with the aim of re-integrating them
into society; v) enact legislative provisions, and adopt and implement policies, strategies and programmes which
define and prohibit sexual harassment in all spheres, and provide deterrent sanctions for perpetrators of sexual
harassment; and iv) adopt integrated approaches, including institutional cross sector structures, with the aim of halving
GBV by 2015. Available from http://www.sadc.int/issues/gender/gender-based-violence/.
391
Southern Africa Development Community (SADC), SADC Gender Protocol 2011 Barometer. Available from
http://www.sadc.int/files/3113/5435/5263/SADCGenderBarometer_2011.pdf.
392
Available from http://povertydata.worldbank.org/poverty/home/.
393
SIGI is a measure of the underlying drivers of gender inequality for over 100 countries. Instead of measuring
gender gaps in outcomes such as employment and education, SIGI instead captures discriminatory social institutions,
such as early marriage, discriminatory inheritance practices, VAW, son preference, restricted access to public space
and restricted access to land and credit. The 2012 SIGI is made up of 14 unique variables, grouped into five subindices: discriminatory family code, restricted physical integrity, son bias, restricted resources and entitlements,
and restricted civil liberties. Available from http://genderindex.org/content/team.
394
The gender inequality index reflects gender-based inequalities in three dimensions – reproductive health,
empowerment and economic activity. Reproductive health is measured by maternal mortality and adolescent fertility
rates; empowerment is measured by the share of parliamentary seats held by each gender and attainment of secondary
and higher education by each gender. Economic activity is measured by the labour market participation rate for each
gender. United Nations Development Programme (UNDP), Human Development Report 2011. Sustainability and
Equity: A better Future for All – Explanatory note on 2011 HDR composite indices: Mozambique, 2011. Available
from http://hdrstats.undp.org/images/explanations/moz.pdf.
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4
African Charter of the Human Rights (2003);395 and acceding to the CEDAW Optional Protocol
(2008);

The inclusion of a specific provision (article 36) articulating the principle of equality between
women and men in the 2004 Constitution;

The raising of the legal age for marriage without parental consent from 16 to 18 years of age for
both men and women, and the minimum age for marriage with parental consent from 14 to 16
years of age (marriage can occur earlier if the girl is pregnant or has parental consent) in the Family
Law Act (2004);

The adoption in 2008 of a law to protect persons living with HIV and AIDS against stigmatization
and discrimination;

The adoption in 2008 of the
Ministry of Education’s policy
on zero tolerance on violence
and sexual abuse in schools
and the 2011 launch of the
corresponding campaign;




395
The development of the
National Action Plan to
Prevent and Combat Violence
Against Women 2008-2012
(see sidebar);
Objectives of the National Action Plan to Prevent and Combat
Violence Against Women (2008-2012)
a) Expand and improve services to victims of violence, including
medical, legal and psychological services;
b) Strengthen institutional capacity and the education and training of
the general public on issues of VAW;
c) Undertake strategic advocacy, information and awareness raising
on the prevention and fight against VAW; and
d) Establish mechanisms for coordinated multisectoral action
against VAW.
(Free translation)
The Law on Domestic
Violence against Women adopted in 2009
(Lei sobre a Violência Doméstica praticada
contra a Mulher, lei n. 29/2009) prohibiting
VAW and marital rape, and providing
penalties of up to 12 years of imprisonment
for engaging in sexual activity while
knowingly infected with a contagious
disease;
The establishment of centres of assistance to
victims of violence (Gabinetes de
Atendimento da Mulher e Criança Vítimas de
Violência) in police stations and health care
facilities since 2000. In 2012, there were 236
such gabinetes.396
Due to high-levels of violence, abuse and
exploitation, in 2000 the Ministry of the Interior
developed a programme, supported by the United
Nations Children’s Fund (UNICEF), to create
specialised centres of assistance for women and
children victims of violence. The “Gabinetes de
Atendimento” is a specialised police section
mandated to provide support, including reporting and
referral services for women and children victims of
violence. They are also responsible for raising
awareness and mobilising communities in matters of
prevention.
Source: UNICEF. Assessment of the model Women
and Children’s gabinetes de atendimento. Final
Report. 8 February 2010.
The development and adoption in 2012 of a
multisectoral mechanism for the integrated care of women victims of violence (mecanismo
Romão, F. and others, Violence Against Women in Mozambique. July 2009, p.9.
396
There are 21 model centres for assistance to victims of violence against women and girls located in police stations,
called Gabinetes Modelos, in nine provinces out of ten. As of 2012 there are also 215 other Gabinetes, called secções
de atendimento, located in police stations and hospitals across the country. The Gabinetes Modelos are better
equipped (in terms of human resources and furniture) than the other gabinetes. Progressively, as resources are made
available from the government and partners, the Gabinetes Modelos will expand. Ministry of Home Affairs,
Applicação da Lei de violência domestica em Moçambique: constrangimentos instituicionais e culturais, experiências
dos GAMC, presentation at the National Conference on Gender-Based Violence, Maputo, November 2012.
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5
multisectorial de atendimento integrado à mulher vítima de violência) by the Council of Ministries.
The mechanism promotes the use of existing community mechanisms for protection of women
survivors of violence,397 but for critical situations it foresees shelter services in integrated care
centres (Centros de atendimento integrado), which are run by civil society organizations (CSOs) or
private entities. It is not clear how many, where or how the integrated care centres will operate; the
mechanism mentions that these may receive funding from the State and other sources.
Despite such progress, available data on violence against women and girls show that there are still
widespread cases of domestic violence and sexual abuse of girls. The 2003 Demographic and Health
Survey399 found that there was a high
tolerance for domestic violence in the
VAW in Mozambique remains widely unreported, estimated to only
country with high percentages of
10 per cent of all cases, as it is perceived by most as a private
women believing it to be acceptable
issue, not a serious act, or because of fear of retaliation.398
for a man to beat his wife if she
neglects the children (38 per cent);
goes out without telling him (37 per cent); refuses to have sex with him (34 per cent); argues with him (33
per cent); or burns dinner (24 per cent). The 2004 International Violence against Women Survey found that
36 per cent of women had experienced physical IPV in their lifetime, while 12 per cent reported having
experienced some type of sexual IPV. When violence committed by non-partners is included, rates
increased to 48 per cent for physical violence and 24 per cent for sexual violence.400 Other forms of intrafamily abuse also appeared to be common and the 2009 African Women’s Report highlighted that hospital
gynecologists had treated numerous cases of incest and rape of young girls by male relatives.401 It is also
estimated that almost nine per cent of girl pupils in secondary school and more than seven per cent in
primary school have been forced to have intercourse whilst in the school setting.402 Some 20 per cent of
surveyed girl students reported having to choose between paying, providing sex or being expelled.403
Recent data revealed that 17 per cent of girls between 20 and 24 years of age were married before the age
of 15, and 52 per cent were married before the age of 18.404 Violence against women and girls is further
exacerbated by human trafficking and high rates of HIV and AIDS.
Factors contributing to this situation include:405
397
República de Moçambique, Mecanismo Multisectorial de Atendimento Integrado a Mulher Vítima de Violencia.
June 2012, pp. 16, 30 and 34.
398
Op. cit. 17.
399
Instituto Nacional de Estatistica and Ministerio da Saude and ORC Macro, Moçambique. Inquérito Demográfico e
de Saúde 2003, Calverton, Maryland, USA. Available from
http://www.measuredhs.com/pubs/pdf/FR161/FR161.pdf.
400
Op. cit. 10.
401
Economic Commission for Africa, Africa’s Women Report 2009. Measuring Gender Inequality in Africa:
Experiences and Lessons from the African Gender and Development Index. Available from
http://new.uneca.org/Portals/awr/2009/AWR09_FIN.pdf.
402
Namburete, E. SADC Gender Protocol Barometer Baseline Study. June 2009, p.44.
403
UNICEF. Situation Analysis of Mozambique. 2006, p.22.
404
2008 Multiple Indicator Cluster Survey, cited in “Compilation prepared by the Office of the High Commissioner
for Human Rights in accordance with paragraph 15 (b) of the annex to Human Rights Council resolution 5/1.
Mozambique.” Human Rights Council. 10th Session of the Working Group on the Universal Periodic Review. Geneva,
24 January–4 February 2011, p. 9.
405
CEDAW, Concluding comments of the Committee on the Elimination of Discrimination against Women:
Mozambique, 38th Session, 14 May - 1 June 2007; Human Rights Council, Compilation prepared by the Office of the
August 2013
6

High illiteracy rates. Sixty per cent of the population are illiterate (39.4 per cent of men and 71.3
per cent of women);

Persistent harmful traditional practices, such as early or forced marriage and polygamy in some
areas, although prohibited under the new Family Law;

Persistent discriminatory stereotypes and cultural practices and traditions of a patriarchal nature
relating to the roles and responsibilities of women and men in the family and in society;

Widespread corruption as measured by commonly used indices, which means that some crimes of
violence against women and girls are not adequately punished;

Discriminatory provisions in the penal code and the laws governing inheritance rights;

The role of traditional courts in dealing with extrajudicial conflict resolution, which often does not
lead to human rights-based decisions;

Limited access to justice (the magistrates / population ratio is 1:96,000 and the Institute for Legal
Assistance and Representation [IPAJ]406 only covers 45 per cent of the country’s districts); and

Insufficient human, technical and financial resources of key ministries (Ministry of Justice,
Ministry of the Interior and Ministry of Women and Social Action)407 in charge of preventing,
protecting and responding to violence against women and girls (also given the size of the country,
which requires important resources from the State to provide adequate access to services to its
population).
In addition, gender advocates (including UN-Women) and women’s rights organizations have raised
concerns over the rapid expansion of large-scale projects to exploit national natural resources in the central
and northern provinces (e.g. coal mining in Tete and gas exploration in Cabo Delgado), and their socioeconomic implications which are likely to increase the prevalence of violence against women and girls.
In terms of access to services, there are still many challenges faced by women and girls survivors of
violence. The gabinetes de atendimento are few, have limited resources and do not offer all the services
required for women survivors. Non-governmental organizations (NGOs) are the main providers of services
(shelters, legal assistance, etc.) but they face resource constraints. There is also limited support from the
government to provide accessible, affordable and specialized legal services, including legal aid, to
survivors of GBV. Instead, this type of service comes primarily from the Association of Women
Lawyers.408
High Commissioner for Human Rights in accordance with paragraph 15 (b) of the annex to Human Rights Council
resolution 5/1. Mozambique, 10th Session of the Working Group on the Universal Periodic Review, Geneva, 24
January–4 February 2011; United Nations, Inventory of the United Nations Systems Activities to Prevent and
Eliminate Violence against Women, January 2010; and Maira Martini (Transparency International), Overview of
Corruption and Anti-Corruption in Mozambique, 5 March 2012.
406
Instituto para o patricinio e assistência jurídica (IPAJ).
407
The Universal Periodic Review of Mozambique (OHCHR) reports that the Ministry of Women and Social Action
receives less than 1 per cent of the national budget.
408
Op. cit. 13.
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2.3
UN-Women and UNIFEM context in the Southern Africa and Indian Ocean Islands
Region
In the 1990s, UNIFEM operated in Mozambique through the Johannesburg (South Africa) regional office.
In 2007, a UNIFEM programme coordinator was assigned to Mozambique to support the implementation
of UNIFEM’s gender-responsive budgeting programme. The programme coordinator also covered all other
thematic areas. In 2008, a Mozambique office headed by a UNIFEM programme manager was established.
During the period 2008-2011, the UN-Women Southern Africa and Indian Ocean Islands regional office in
Johannesburg was responsible for Angola, Botswana, Comoros, Lesotho, Madagascar, Malawi, Mauritius,
Namibia, South Africa, Seychelles, Swaziland, Zambia and Zimbabwe. With the new regional structure put
in place in 2012-2013, the regional office has become a multi-country office for Southern Africa and has
kept its location in South Africa.
As a result of the new regional structure, the Mozambique office has become a full-fledged country office
headed by a Country Representative since August 2012 and overseen by the regional centre in Nairobi
(Kenya).409 At the time of the field mission, the office did not yet have delegated financial authority and
was still relying on the UN-Women office in Johannesburg (South Africa). On the staffing side, compared
to 2010-2011, staff numbers have fallen from six to three (one programme manager and two programme
assistants), because of the departure of two Junior Professional Officers and the Communication Officer
funded by the Spanish Agency for International Development Cooperation (AECID). Administrative staff
members have fixed-term contracts while programme staff members are on short-term contracts. The office
experiences regular energy cuts which affect its regular functioning (no internet connectivity or phone line).
3.
3.1
pr ogr a m mi ng i n M oza m bi que ( 2 0 0 8 - 20 11 )
Overview
This section provides an overview of work on violence against women and girls that was led or assisted by
UNIFEM in the Southern African subregion and, more specifically, in Mozambique between 2008 and
2011. It includes initiatives funded and managed by UNIFEM, as well as projects funded by the SecretaryGeneral’s Trust Fund for Ending Violence against Women (UN Trust Fund) that were administratively
supported by UNIFEM. A description of these projects is provided in Appendix V.
3.2
Between 2008 and 2011, programming on violence against women and girls in the subregion was guided
by UNIFEM’s subregional strategy 2008-2009, which was extended to 2010-2011. The programmatic areas
of focus included: gender mainstreaming; ending VAW; piloting of the CEDAW model; women’s political
leadership; and humanitarian responses. The priority areas concerning EVAW identified in the 2008-2009
strategy, and confirmed in its extension for 2010-2011, were the: i) Secretary-General UNiTE campaign; ii)
work with the Men Alliance through the South African-based Sonkhe Gender Justice Network to advocate
for the inclusion of ending violence against women and girls as part of the World Cup 2010 hosted in South
Africa; iii) linkages between VAW and HIV; and iv) the Safer Cities programme in the Northern Province
of South Africa.
409
UN-Women, Executive Board of the United Nations Entity for Gender Equality and the Empowerment of Women.
Regional Architecture. 24 April 2012.
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8
Also during this period, UNIFEM supported efforts against VAW in the subregion through two projects
(either through direct project support or core funding), and 10 projects funded through the UN Trust Fund
amounting to $7,732,472.
3.3
VAW programming in Mozambique
Mozambique received the most support from UNIFEM in the subregion. Between 2008 and 2011,
UNIFEM supported one programme on gender equality and women’s empowerment (consisting of several
initiatives related to the UNiTE campaign), amounting to $703,046. UNIFEM also supported VAW
programming through two projects funded by the UN Trust Fund for a total investment of $1,100,000.
UNIFEM programme/project support
Between 2008 and 2011, UNIFEM’s interventions in Mozambique focused on three areas: i) SGBV; ii)
domestic violence and VAW; and iii) trafficking in women.410 The interviews and document review
indicated that the objectives of these interventions were to improve legislative and/or policy frameworks,
strengthen capacity of key actors and institutional change, and broaden social/community support for and
changing social norms related to ending violence against women and girls.411 Key strategies applied by
these interventions to achieve these objectives focused on: development of both duty bearers and rights
holders; coordination of work on ending violence against women and girls; advocacy; policy guidance and
advice; and social/community mobilization.
UNIFEM’s efforts to end violence against women and girls in Mozambique between 2008 and 2011 were
grouped under the umbrella of the United Nations Joint Programme on Women’s Empowerment and
Gender Equality. The joint programme was part of the governance pillar412 of the United Nations
Development Assistance Framework (UNDAF) 2007-2011 and aligned with outcome 1.413 Within the joint
programme, which was used to implement the UNiTE campaign,414 UNIFEM support focused on outcome
3 which requires improvements in the rule of law, access to justice and penal reforms within the domain of
VAW and with an emphasis on public and human security, and output 3, whereby the national capacity of
local authorities and CSOs to effectively address the issues of public security, including GBV, be
strengthened. According to the financial information provided in the annual workplans of the joint
programme, UNIFEM contributed $703,046. Under the joint programme, UNIFEM:

In partnership with the Ministries of Women and Social Affairs, Home Affairs and Health, and
CSOs, provided support for the approval, implementation and enforcement of the Law on Domestic
Violence against Women (n. 29/2009) and the National Action Plan for Prevention and Combat of
Domestic Violence against Women ($108,315);

Strengthened interventions relating to advocacy and raising awareness to end violence against
women and girls – through radio (particularly community radio), dissemination of the Law on
Domestic Violence against Women and the National Plan on Prevention and Combat of Violence
Against Women, and Men-to-Men campaign against violence perpetrated on women – in
410
United Nations. Inventory of the United Nations systems Activities to Prevent and Eliminate Violence against
Women. January 2010.
411
The categorization has been taken from the final inception phase workplan (7 September 2012) developed in the
framework of the thematic evaluation.
412
The 2007-2011 UNDAF had three programmatic pillars: governance, human capital, and HIV and AIDS.
413
UNDAF outcome 1 requests “[b]y 2011, government and CSO capacity at national, provincial and local level,
strengthened to plan, implement and monitor socioeconomic development in a transparent, accountable, equitable and
participatory way in order to achieve the MDGs.”
414
In Mozambique, the UNiTE campaign was launched by President Armando Guebuza in November 2010.
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partnership with the Ministry of Home Affairs and CSOs, such as the Fórum Nacional de Rádios
Comunitárias (Forum of Community Radio Broadcasters - FORCOM), Núcleo das Associações
Femininas da Zambezia (Centre of Women's Associations of Zambezia), and HOPEM ($395,916);

Conducted the evaluation, and mapped interventions and support services for women victims of
violence available in the country, in partnership with the National Directorate of Women and the
Provincial Directorate of Women & Social Affairs ($15,000);

Contributed to strengthening the services capacity of the CSOs running shelters and homes for
women and children victims of violence, such as Nhamai in Maputo province and LeMuSiCa415 in
Manica province, ensuring exchanges of experience between them and exposing them to best
practices in South Africa and Italy ($153,815); and

Trained CSO service providers on issues related to VAW and a study on the socio-economic costs
of VAW ($30,000).
UN Trust Fund
During the period under review, the UN Trust Fund disbursed $1,100,000 through two projects:

Pathfinder International Mozambique was given a grant of $1,000,000 for a three-year (2010-2013)
project entitled Enhancing Reproductive Rights to Reduce VAW in Gaza Province. The project
aims to reduce gender inequality, VAW and its effects through a concerted multisectoral effort in
Gaza Province. Five main strategies to establish a sustainable, coordinated response to VAW are
being employed: further primary prevention of VAW through school-based programmes,
community-based approaches and male involvement; establishment of an integrated package
focused on secondary prevention and mitigation of VAW; building of multisectoral capacity for
effective and sustained VAW interventions; collaboration with frontline advocates to support legal
and policy reform; and application of a collective linking and learning approach for sustainability.
These strategies aim to contribute to the UNiTE key national outcomes related to enforcement of
national laws, implementation of multisectoral action plans, and social mobilization and prevention
strategies. The project was mainly managed by the UNIFEM subregional office in South Africa.

Forum Mulher, a network of over 80 national and international organisations working to promote
women’s rights in Mozambique, was given a grant of $100,000 for a three-year period (2008-2011)
for their project Transforming Beliefs, Traditional Practices and Service Delivery to Redress
Violence against Women and Reduce Women and Girl’s Vulnerability to HIV Infection. The
project consisted of raising awareness over the link between HIV and AIDS and violence against
women and girls, and addressing norms of masculinity and male behaviour contributing to this twin
pandemic. The project was done in collaboration with the Ministry of Health and the Ministry of
Women and Social Action.
Other contributions
UNIFEM’s work on violence against women and girls was also included in the gender-responsive
budgeting (GRB) programming carried out since 2005.416 This work is coded in the UN-Women and
UNIFEM database of projects under the category economic empowerment rather than violence against
women and girls. However, interviews conducted with UN-Women staff during the field mission and the
415
LeMuSiCa meaning Levanta-se mulher e siga o seu caminho (Women, get up and follow your path).
416
There was a first phase of the GRB programme, with the support of the Government of Belgium, between February
2003 and May 2005. The first phase did not focus on budgets for efforts to end violence against women and girls.
Institute of Development Policy and Management, Integrating Gender Responsive Budgeting into the Aid
Effectiveness Agenda. Mozambique Country Report, n.d.
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review of the GRB evaluation (2009)417 reveal that violence against women and girls was an important
dimension of this work, and that one of the five strategies was strengthening the capacities of the Ministry
of Finance and the Ministry of Planning for providing technical support to shape sector-level budget
allocations addressing service provision for VAW. UNIFEM, in agreement with national partners, focused
the GRB programme on key thematic issues that were selected as pilots (e.g. VAW within the Ministry of
Interior; and VAW, HIV and AIDS, and maternal health within the Ministry of Health). The focus has been
maintained and the activities implemented in 2012 consisted of GRB training of CSOs and government
staff who are part of the services chain of VAW victims in the Gaza Province with the aim of strengthening
their capacities to reflect VAW dimension in institutional planning, budgeting and reporting process.418
3.4
In 2007, Mozambique was one of the countries selected as a pilot for the United Nations Delivering as One
Initiative.419 There are over 20 United Nations entities currently working in Mozambique, under the
UNDAF and in 2010, at least 11 of these entities had programming on violence against women and girls.420
According to those interviewed, the most important entities were UNICEF, UNDP, UNIFEM and the
United Nations Population Fund (UNFPA) which, until recently, was the lead agency on violence against
women and girls and gender equality in Mozambique, a role that is now being increasingly played by UNWomen.
Between May 2007 and December 2011, nine United Nations entities (including UNIFEM) carried out
work on violence against women and girls as part of the Joint Programme on Women’s Empowerment and
Gender Equality, in partnership with some central and line ministries, CSOs and other national actors. As
reported in the final report of the joint programme,421 “efforts were concentrated in the promotion of
advocacy, lobby and dialogue for the approval of the law against VAW and the dissemination of the
National Plan of Prevention and Combat against Violence.” The joint programme also aimed to enhance
advocacy networks for prevention and support for the establishment of services for women and child
victims of violence and to improve assistance to victims of violence.
At the end of the joint programme, in
January 2012, UN-Women advocated
for the establishment of a United
Nations Gender Joint Team (GJT)
with the aim of monitoring and
ensuring consistency in the
integration of gender equality
considerations in the implementation
of the UNDAF; developing common
positions and joint communications to
the government; and coordinating
GJT Objectives (as per the Terms of Reference)
i) To support the UNCT in ensuring a shared understanding of
gender mainstreaming taking into account the culture and human
rights approach;
ii) To adopt a coherent United Nations approach in addressing the
national priorities through the UNDAF action plan; and
iii) To foster an internal culture of accountability for and visibility of
individual and joint results.
417
Social Development Direct. UNIFEM Work on Gender-Responsive Budgeting. Gender-Responsive Budgeting
Programme: Mozambique. Evaluation Report. 2009.
418
UN-Women Mozambique. Programme Planning Exercise and Mid-Term Review of the Approved Annual
Workplan 2011-2013. 2013.
419
Taken from the Delivering as One in Mozambique website. Available from http://mz.one.un.org/eng/How-wework/UN-Agencies.
420
United Nations. Inventory of the United Nations systems Activities to Prevent and Eliminate Violence against
Women. January 2010.
421
United Nations. Joint Programme on Women’s Empowerment and Gender Equality. Final Programme Narrative
Report. Available from mdtf.undp.org/document/download/9769.
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11
events (such as the 16 Days of Activism against Gender Violence or the International Women’s Day). GJT
is led by the UN-Women representative, with the UNFPA representative as alternate, and is composed of
staff with gender expertise who are appointed by the entities. In 2012, four key expected outputs were
identified by the GJT in its annual workplan, namely: support to the UNCT to ensure gender equality is
mainstreamed thorough the implementation processes of the UNDAF provided; availability and quality of
updated gender related data and information ensured; support to UNCT in mobilizing resources for the
implementation of the UNDAF's results on gender equality provided; and visibility of United Nations joint
results and advocacy on gender equality and women's empowerment enhanced. According to some
stakeholders interviewed, however, some GJT members have not regularly participated.422
In the framework of the existing mechanisms in place for implementing the UNDAF, UN-Women and
UNIFEM also participated in the inter-agency Development Results Group on governance, 423 which
includes a specific sub-group on VAW.
UN-Women and UNIFEM also played a coordination role in the launch of the UNiTE campaign with the
Ministry of Women and Social Action, and in the Gender Coordination Group (GCG) which is a
mechanism for political dialogue, consultation, information sharing, policy analysis, technical support and
advocacy for the advancement of gender equality and women's empowerment as part of the development
process of Mozambique. The GCG brings together members of civil society, partners from multilateral and
bilateral cooperation, the Ministry of Women and Social Action, the Ministry of Planning and
Development, members of the National Council for the Advancement of Women, and gender specialists or
activists.424 Originally co-chaired by UNFPA, the group has been co-chaired by UN-Women since 2011.
Interviewed stakeholders also noted UN-Women’s contribution to the establishment in 2011 of a GCG
subgroup dedicated to VAW. Different views were expressed by stakeholders concerning the effectiveness
of the GCG, three stakeholders (i.e. half) considering it a functional and effective mechanism to coordinate
action around VAW (by, for example, helping with the dissemination of the Law on Domestic Violence
against Women and CEDAW reporting process), while the remaining three noted some problems with the
frequency of meetings and members’ commitment.
In 2008, UNIFEM guided the gender scorecard exercise in Mozambique to assess the UNCT’s contribution
to gender mainstreaming and the promotion of gender equality in the country. In 2009, it led work to
establish an inventory on EVAW interventions by United Nations entities (Inventory of the United Nations
System Activities to Prevent and Eliminate Violence against Women, January 2010), to prompt concerted
efforts to increase and improve the gender responsiveness of the UNDAF by the UNCT. 425
At the time of the field mission to Mozambique, the UN-Women country office was also leading the
development and submission of a proposal for the UN Trust Fund. UNIFEM had developed joint proposals
for the UN Trust Fund in the past, but had not been awarded any grants.
422
The evaluation team were not able to confirm this information. At the time of writing, it had not been able to access
the GJT’s meeting minutes to verify data on the frequency and participation.
423
The Development Results Group serves as the operational mechanism for the sectoral coordination, management
and monitoring of United Nations interventions around UNDAF outputs and outcomes and mainstreaming of HIV and
AIDS and gender across the entire UNDAF.
424
Termos de referência do Grupo de Coordenação de Género, Agosto 2010.
425
UN-Women Mozambique. Enhancing Capacities to Accelerate the Implementation of Gender Equality and
Women’s Empowerment Commitments in Mozambique, Strategic Note 2012-2013.
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Findings
4.
4.1
Overview
63) For the period 2008-2011, what contribution to results in ending VAW in Mozambique were made
by UN-Women predecessor entities? What related lessons were learned? (Section 4.2)
64) What are the organizational strengths and weaknesses, past and present, of UN-Women? What
lessons have been learned from its predecessor entities regarding planning, implementing,
monitoring and evaluating EVAW-related work? (Section 4.3)
65) To what extent has UN-Women strategically positioned itself to enable it to prevent and respond
to VAW in global, regional and national contexts? (Section 4.4)
The lessons/best practices noted in the sidebars in this chapter reflect the views of consulted stakeholders,
observations and findings from available evaluations, and observations made by the evaluation team based
on available data.
4.2
4.2.1 General
Mozambique. Section 4.2.2 presents findings on relevance, which cuts across the different dimensions of
UN-Women’s mandate. Sections 4.2.3 to 4.2.5 present findings of contributions towards the key results
outlined in the reconstructed corporate results logic for UN-Women’s corporate work on EVAW.426 Section
4.2.6 outlines factors likely to affect the sustainability of results achieved to date.
4.2.2 Relevance
From the interviews conducted and the
2007 CEDAW Committee’s concluding
comments for Mozambique,427 the most
relevant areas of UNIFEM’s work in
contributing to cultural and behavioural
changes on VAW in the period 2008-2011
have been:
Lessons Learned
In Mozambique, working on the cultural aspects of norms and
behaviours should be a fundamental component of any
strategy aiming at ending violence against women and girls.

Raising awareness of violence against women and girls in society as a whole;

Engaging men in the fight against violence against women and girls; and

Advocating for the adoption and dissemination of the Law on Domestic Violence against Women,
which makes domestic violence a punishable crime rather than a family matter.
Some stakeholders felt that UNIFEM should have played an advocacy role and critically noted that it
sometimes acted more as an implementing agency (e.g. in its direct involvement with the shelter run by
Nhamai (women’s shelter) despite its catalytic mandate and very limited resources.
426
427
CEDAW, 38th session. Concluding comments of the Committee on the Elimination of Discrimination against
Women: Mozambique. 14 May - 1 June 2007.
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Stakeholders interviewed had different views on the relevance of UNIFEM’s support to Nhamai. While
representatives from the government and CSOs were very supportive, other stakeholders interviewed felt
that shelters run by NGOs with government support would not be sustainable given Mozambique’s limited
resources and that other existing community mechanisms should be promoted as ways to provide protection
and critical services for women survivors of violence instead. In most cases, the gabinetes, CSOs and other
actors working with women survivors of violence identify a secure temporary shelter in family, friends or
community members whenever possible. In addition, it was felt that shelters in Mozambique are not
appropriate for the needs of young girl survivors of violence as they become a sort of orphanage.
around the key results outlined in the reconstructed corporate results logic as noted in the final evaluation
Inception Report.428
Legislation is developed and
adopted in Mozambique to respond
to and prevent violence against
women and girls
to respond to and prevent violence against women and girls”
(reconstructed corporate results logic in Annex VII)
Interviewed stakeholders agreed that
support provided to the development and adoption of the Law on Domestic Violence against Women (n.
29/2009) represented one of the key contributions UNIFEM Mozambique made to legislative changes in
favour of increased protection for
women against violence. The
The Law on Domestic Violence against Women (n. 29/2009) makes
domestic violence a public crime (anyone can report a case) for the
adoption of the law was achieved
first time. It calls for increased penalties for offenders, and places an
with the support of parliamentarians
obligation on the State to assist victims through provision of services
who discussed the provisions in the
such as police investigation and medical treatment.
project of law on domestic violence
The law specifies eight types of crime: simple physical violence,
and through advocacy efforts of
serious physical violence, psychological violence, moral violence,
CSOs. Both the advocacy and the
non-consensual copulation, copulation with transmission of
sensitization of parliamentarians
diseases, patrimonial violence and social violence.
were supported by UNIFEM either
financially or technically.
Interviewed stakeholders consider the law a key achievement in the fight to end VAW not only because it
contributes to the further alignment of the national legislation with international conventions on women’s
human rights, but also because it provides women with a legal basis to denounce cases of domestic
violence, thus contributing to an increase in the number of cases of domestic VAW reported to the
gabinetes de atendimento (from 6,440 in 2004 to 11,761 as of September 2012).429
428
Section 4.2.4 below summarizes findings regarding the inter-agency coordination dimension of UN-Women’s
mandate. The third dimension of UN-Women’s mandate related to intergovernmental/normative work is not addressed
separately in country case studies, as most of this work takes place at the global level. However, when a country
achievement is relevant to normative work, this is noted in the case study.
429
República de Moçambique. “Plano Nacional de Acção para Prevenção e Combate à Violência contra a Mulher
(2008-2012)” and Police Force of the Republic of Mozambique-Ministry of Interior. “Applicação da Lei de violência
domestica em Moçambique: constrangimentos instituicionais e culturais, experiências dos GAMC.” Presentation at
the National Conference on Gender-Based Violence, Maputo, November 2012.
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14
Nevertheless, interviewed stakeholders also recognized some weaknesses in the content of the law and
noted the implementation challenges ahead. For example, while girls are covered by the Children’s Act
(2008), the Law on Domestic Violence against Women is not considered to provide sufficient protection to
girls. In terms of implementation challenges, interviewees noted that further efforts will be required to
ensure the application of the law (including further dissemination of and raising awareness of the law at the
grass-roots level), further sensitization of those charged with applying the provisions of the law (judges, the
police and paralegals among others) and enforcement of court decisions.
Women and gender advocates in
Mozambique influence policies and
UNIFEM’s support to CSOs
budgets to address VAW.” (Reconstructed corporate results logic in
Annex VII)
advocating for gender equality and
ending violence against women and
“Gender equality experts, advocates and their organizations and
girls contributed to influencing
networks effectively demand the implementation of gender equality
policies, including the adoption of
dimensions in national laws, policies and strategies.”
Law on Domestic Violence against
“Women who are subject to exclusion are able to effectively
Women (n. 29/2009) noted above, and
advocate for having their priorities incorporated in relevant policies,
to government action in the adoption
programmes and processes.”
of the multisectoral mechanism for the
“Key policy, service delivery and media institutions create enabling
integrated care to women survivors of
institutional environment to promote and protect women’s rights in
violence. This mechanism was created
line with global, regional and national agreements.”
in response to lobbying efforts of the
(Subregional strategies 2008-2009 and 2010-2011 of the Southern
staff of the gabinetes and CSOs with
Africa and Indian Ocean States regional office)
the support of UNIFEM/UN-Women
and other United Nations, for better coordination and increased resources for services to women and
children survivors of violence.
UNIFEM also supported gender advocates and CSO/NGOs address VAW in Mozambique through several
initiatives: engaging men and boys as agents of change to end VAW, training celebrities to become
champions in raising awareness of violence against women and girls, and facilitating CSO networking and
sharing of experiences.
Engaging men and boys as agents of change: The majority of interviewed stakeholders identified
UNIFEM’s engagement of men in efforts to end violence against women and girls as one of its most
important contributions and the first initiatives in Mozambique that engaged men in the cause.
UNIFEM supported two initiatives: HOPEM -Rede Homens Pela Mudança (Network of Men for
Change) and the television programme Homem que é Homem (Man-to-Man Initiative). Those
interviewed said there is now consensus among national stakeholders that men and boys should be
considered agents of change to the same extent as women – in terms of changing the culture and
behaviours that support the perpetuation of violence against women and girls – and recognize the
need to engage them in the fight.
These initiatives were found to: i) provide a way to reach men more easily; ii) create spaces for men
to talk about VAW and masculinity; iii) contribute to making VAW an acceptable topic for public
discourse (as shown by requests to produce the television programme at the community level); and
iv) contribute to making VAW more visible in the media (as shown by VAW-coverage in national
newspapers, the rebroadcast of the television programme on two channels and free airtime provided
for the television programme).430
430
As shown by the space attributed to violence against women and girls in national newspapers, the rebroadcast of
the programme Homem que é Homem on two channels and the free airtime given to the programme.
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Homem que é Homem is giving visibility to violence against women and girls and a representative of
ArtSocial who produced the programme reported that it has become a national and regional reference on
the theme of engaging men. National NGOs have solicited ArtSocial for training on the theme, and the
programme has received regional and international awards and recognition. Organizations in Madagascar,
Uganda and Swaziland have expressed interest in having similar programmes.
The extent to which these initiatives have been successful in reaching out to men and boys who were either
indifferent to the problem of violence against women and girls and/or responsible for perpetuating violence
is not known since there have not yet been formal or informal evaluations of the effectiveness of these
initiatives – and it may be too early to see a change in those statistics. It will be necessary, for example, to
evaluate the extent to which Homem que é Homem has been successful in changing attitudes and
behaviours to violence against women and girls (the programme dealt with the relationships between men
and women and with men’s anger, rather than dealing directly with violence against women and girls). As
reported by the UN-Women country office in Mozambique, part of this information will soon be available
as it had started the evaluation of the impact of the UNiTE campaign.
Training celebrities and champions to end violence against women and girls: Together with Forum
Mulher, UNIFEM trained four celebrities from music, theatre, journalism and television on: issues of
socialization and VAW; international, regional and national commitments on VAW; and the UNiTE
campaign’s goal to have campaign champions in Mozambique. The celebrity champions gained basic
knowledge on gender and were provided with tools to use as reference in their advocacy work. 431 The
celebrities, two men and two women, starred in four television spots which have been aired on the three
main television channels.
Facilitating CSO networking and knowledge sharing: According to interviews and the document
review, UNIFEM supported CSOs by facilitating networking and sharing of experiences. As a result:

HOPEM and Nhamai gained access to information, potential donors and governmental partners
through participation in the GCG and links with key ministries brokered by UNIFEM;

Nhamai established a working relationship with the police to provide security and assistance to
women survivors of violence. The shelter run by Nhamai provides services to women survivors of
violence – over 700 since 2008432 – but is still facing sustainability challenges; and

HOPEM has started a project with UN-Women financial support and in cooperation with the
Administration for Prison Services (under the Ministry of Justice) for the rehabilitation of men in
prison as perpetrators of violence.
Strengthening the capacity of national authorities in Mozambique to enhance the quality of services
to VAW survivors
Between 2008 and 2011, UNIFEM and other United Nations entities such as UNICEF and UNFPA,
supported the government’s efforts to improve critical services to women and girls who survived violence.
UNIFEM’s support focused on:
431
Langa, J. Report on the Consultancy to the UNiTE Campaign: June-December 2011. December 2011.
432
Joint Noticias. Liga de ONGs em Mocambique. 24 June 2010. Available from
http://www.joint.org.mz/joint3/noticias/articlefiles/168-JOINT_NOTICIAS%5B1%5D%5B1%5D.pdf
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
Providing financial support for
the refurbishment of the
gabinetes de atendimento, with
UNICEF and UNDP.
“National and local level authorities enhance number and/or quality
results logic in Annex VII)

Providing support to ensure
stronger collaboration between
“Increased numbers and relevance of models of community-level
the Ministry of Justice, more
initiatives for advancing women’s human rights and eliminating
gender inequality.”
specifically the Institute for
Legal Assistance and
(Sub-regional Strategies 2008-2009 and 2010-2011 of the Regional
Representation (IPAJ) and
Office for Southern Africa and Indian Ocean States)
Ministry of Interior (police) to
ensure free legal aid to victims of violence, especially women and children, at the 20 victim
support units at police stations throughout the country, together with UNDP, UNFPA and
UNICEF.

Developing a multisectoral mechanism for the integrated care of women victims of violence
(mecanismo multisectorial de atendimento integrado à mulher vítima de violência). UNIFEM and
other actors supported the Ministry of Women and Social Action and other ministries to
conceptualize a mechanism that ensures women survivors of violence have coordinated access to
legal, health and psychological services. The mechanism, approved by the Council of Ministers in
May 2012, is currently in its implementation phase.

Providing financial support and technical assistance to strengthen shelters for women survivors of
violence (Nhamai, LeMuSiCa and NAFEZA) and providing opportunities for exchange and sharing
of experiences. It also facilitated linkages between the shelters and some ministries by promoting
joint participation in study tours and by inviting Nhamai to be part of the GCG.
Overall, stakeholders interviewed felt that there has been an improvement in the quality of the critical
services to women and girl survivors of violence, and some consider that there is better coordination
between shelters and other service providers.
According to a 2011 UNICEF brief,433 the support provided by UN-Women, UNDP, UNFPA and UNICEF
to ensure stronger collaboration between the Ministry of Justice (specifically, the IPAJ) and Ministry of
Interior (police) to ensure free legal aid to victims of violence resulted in “(i) a Child Rights Campaign, 17‐
21 January 2011, whereby approximately 20,000 persons participated in awareness raising sessions; (ii)
training of Legal Aid (IPAJ) workers on children and women's rights; and (iii) equipping all 20 Police
Station based violence victim support units (gabinetes de atendimento) throughout Mozambique with
computers, office furniture and motorcycles.” The brief also highlighted the expectation that women and
children survivors of violence would have access to free legal aid by 2011.434
The evaluation team is not aware of any evaluations to assess the effectiveness of UNIFEM’s support to
gabinetes and shelters. The multisectoral mechanism was approved in 2012 and implementation is just
starting. It is therefore too early to assess whether it has resulted in any systematic improvement in the care
provided to women victims of violence.
433
UNICEF. Brief on Accelerating Prevention and Response to Violence Against Children in Mozambique. 2011.
Available from http://www.unicef.org.mz/online-files/Violence-and-Abuse-14-10-2011.pdf.
434
In 2012, there were IPAJ in 57 out of 128 districts which meant, in principle, that they had access to legal aid.
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Increased awareness of and public support for EVAW from decision makers, leaders and community
members
UNIFEM supported the strengthening
of public awareness of, and support for,
ending violence against women and
“Awareness of and public support for ending VAW from decision
makers, leaders and community members.” (Reconstructed
girls through its support of the UNiTE
corporate results logic in Appendix VII)
campaign435 (named UNiDOS in
Mozambique meaning “we are united”).
The campaign was launched in November 2010 by the Head of State436 and replicated at the provincial
level by each province’s respective
governor.437
While the campaign is an interGood Practice
agency initiative and results cannot
The use of different media (including community radio) helped in
be attributed only to UNIFEM,
reaching out to a population spread across the vast territory of
respondents recognized UNIFEM’s
Mozambique in the local languages and help create momentum for
important role in marketing the
public awareness-raising on ending violence against women and girls.
campaign and bringing together
work by United Nations entities,
CSOs and other actors under the umbrella of the UNiTE campaign, thus raising its visibility and fostering
the government’s involvement.
Stakeholders considered UNIFEM’s efforts in Mozambique to have contributed to increasing public
awareness and support the cause of ending violence against women and girls. They noted in particular the
efforts related to men’s initiatives, training and engaging public celebrities as campaign champions,
strengthening of CSOs, and the dissemination of the Law on Domestic Violence against Women. Evidence
of successful efforts to raise awareness, as mentioned by stakeholders, include:

An increase in reported cases of violence against women and girls to the gabinetes de atendimento
(from 6,440 in 2004 to 11,761 in September 2012);

Heightened awareness by provincial authorities of the need to carry out their own actions related to
VAW;

Greater coverage on violence against women and girls-related issues in the media;

Increased participation in debates held on Homem que é Homem and requests received for
rebroadcasting the programme at the community level.
Stakeholders agreed that efforts to strengthen the capacities of duty bearers and rights holders and increase
public awareness are still required for a reduction, and eventual elimination, in the cases of violence against
women and girls to be seen. Whether there has been a change in the number of cases of violence against
women and girls is not clear because of a lack of data, but many stakeholders felt that the increase in the
reporting of cases is a positive indication that attitudes and behaviours are changing and that eventually,
with the required and sustained support from United Nations entities and other actors, women and girls
435
The UNiTE campaign is a United Nations inter-agency initiative bringing together United Nations entities in
support of the government to undertake coordinated actions to eliminate violence against women and girls.
436
At the time of the country visit, an evaluation of the UNiTE campaign in Mozambique was being carried out by a
consulting firm. The data collection and report writing were still ongoing.
437
See also Julio Langa (2011), Report on the Consultancy to the UNiTE Campaign: June-December 2011.
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survivors of violence will receive the critical services they require from the government and service
providers.
Stakeholders interviewed recognized
that violence against women and girls
is no longer a taboo topic in
“Institutional and societal norms and behaviours are supportive of
Mozambique and that UNIFEM had
EVAW.” (Reconstructed corporate results logic in Appendix VII)
contributed to that. While this is not a
result of the last four years, but rather the result of at least 15 years of efforts made by a variety of actors
(including CSOs, United Nations entities and public officials), some of the most recent initiatives supported
by UNIFEM have contributed to increase the visibility of this problem.
In the media, gender equality-related discussions have been institutionalized, as shown by the success of
Homem que é Homem which is now running with
partial financial support from the television
station. Whether this programme is effective in
Lessons Learned
changing societal norms and behaviours to
support ending violence against women and girls
In Mozambique, sustainable and effective change
still needs to be evaluated. In addition,
processes require complementary interventions that
stakeholders also noted that institutional and
address women’s status, living conditions and
autonomy, as well as power relations within the family
social behaviours are already being shaped or are
and society, toward respectful and non violent
likely to be shaped by the adoption of the Law on
practices.
Domestic Violence against Women, the National
Action Plan to Prevent and Combat VAW (20082012) and the multisectoral mechanism for the integrated care of women victims of violence. At the same
time, stakeholders recognized a number of factors which, in their view, slowed down changes in social
norms and related individual and collective behaviours, including: cultural and traditional beliefs and
related patterns of behaviour; women’s low level of economic empowerment; widespread illiteracy
(especially among women); limited access to information in rural and remote communities because of
language barriers; communication/transportation-related barriers; and the size of the country.
UNIFEM’s efforts in Mozambique
between 2008 and 2011 also aimed to
strengthen the government’s
Government and service providers are accountable to women and
accountability to women and girls for
girls for prevention, protection and response to VAW.
prevention, protection and response to
(Reconstructed corporate results logic in Annex VII)
violence. Efforts focused on two main
Increase in the number of budget processes that fully incorporate
areas: GRB and strengthening the
gender equality.
Ministry of Women and Social Action
(Subregional strategies 2008-2009 and 2010-2011 of the Southern
in its role to promote and coordinate
Africa and Indian Ocean States regional office)
gender equality issues, including
violence against women and girls among ministries.
While this evaluation did not look in-depth at GRB-related work, stakeholders familiar with the topic
recognized the important contribution UN-Women and UNIFEM have been making to give visibility to
violence against women and girls-related activities in the national and sectoral/ministerial budgets. While
this has likely not yet been translated into an increase in budget allocations for the cause, they considered it
important because it allows the government to monitor and report on the actions conducted.
August 2013
19
With regard to strengthening the Ministry of Women and Social Action, technical and financial support
provided by UNIFEM over the years is seen as directly contributing to the development of the National
Plan to Combat Violence against Women and to the Ministry’s preparation of a report on the
implementation of the UNiTE campaign in 2012.
To strengthen service providers’ accountability for the response to violence against women and girls,
UNIFEM, other United Nations entities and CSOs supported police training in the gabinetes and training of
health providers on international, regional and national commitments on VAW. No evaluation of the
training activities appears to have been carried out so far, so it is not possible to affirm whether this has
contributed to the increase in the number of cases of violence against women and girls registered by the
police at the gabinetes or improvements in services to survivors by the police or health sectors.
Stakeholders interviewed noted that an amendment to the Ministry of Home Affairs law to formalize the
existence of the gabinetes thereby creating the condition to set aside financial resources for their
functioning is currently waiting Parliament’s approval. This shows the government’s strong commitment to
keep the gabinetes operational and interviewed stakeholders credit UNIFEM as one of the actors
contributing to this commitment.
Women and girls who are survivors of violence increasingly have access to required services
In Mozambique, women and girls
who are survivors of violence still
have limited access to required
Women and girls who are survivors of VAW demand and have
services due to obstacles to demand
access to required services. (Reconstructed corporate results logic
and have access to required critical
in Appendix VII)
services. From the interviews
conducted, it emerged that UNIFEM
contributed to increasing women’s access to required services by providing support to advocacy and
dissemination initiatives with the aim of empowering women to demand services. In addition, it supported
(financially and technically) the strengthening of the existing shelters run by Nhamai (in Matola) and
LeMuSiCa (in Manica). However, in the absence of an assessment of the services provided by these
shelters it is not possible to conclude whether UNIFEM’s support resulted in improved access to services.
As shown by the examples below, between 2008 and 2011 the UNIFEM country office in Mozambique
was able to link its interventions with the normative work conducted by UNIFEM and other actors at the
global level.
UNIFEM supported the Government of Mozambique in preparing the country’s first and only report to the
CEDAW committee, and in preparing and participating in the Commission on the Status of Women (CSW)
session held in 2008. In 2010 and 2011, the UN-Women country office also supported the participation of
CSOs to the CSW. The most important result of this support appears to be the government’s use of
CEDAW when developing its strategy to fight violence against women and girls. The National Plan on
Prevention and Combat of Violence Against Women 2008-2012 is a “mechanism for making operational
the international commitments ratified or undertaken by the country among which are CEDAW, the
African Charter on Human and Peoples’ Rights, Rights of Women in Africa, through the design of concrete
actions to realization of these commitments.”438
In addition, the adoption of the Law on Domestic Violence against Women is a clear result of the
normative work carried out by UNIFEM in Mozambique in follow-up to the 2007 CEDAW concluding
438
Unofficial translation of the República de Moçambique, Plano Nacional de Acção para Prevenção e Combate à
Violência contra a Mulher (2008-2012), p. 6.
August 2013
20
comments which called on Mozambique to adopt a draft law against domestic violence as soon as possible.
Finally, according to its 2008 subregional annual report,439 UNIFEM’s work in preparing the government
and CSOs for the 2008 CSW contributed to the government allocating $40,000 to the National Council on
Advancement of Women.440 This also aligned with the 2007 CEDAW committee’s concluding observations
which urged Mozambique “to provide the existing national gender machinery with adequate human,
financial and technical resources, at all levels, to ensure that it may effectively carry out its functions,
including monitoring the implementation of the Convention.”441
An overview of inter-agency
coordination in Mozambique was
presented above in Section 3.4.
Lessons Learned
Coordination among agencies requires resources and capacity by
UNIFEM’s contribution to the
the coordinating body. In addition, the availability of / prospect for
coordination of violence against
resources can drive coordination.
women and girls-related work among
United Nations entities should be
considered in the following context: i) United Nations entities worked under the Delivering as One
initiative; ii) UNIFEM has only had a physical presence with an office in Mozambique since 2007; and iii)
other United Nations entities with more resources than UNIFEM have played an important role in
promoting the fight against of violence against women and girls (e.g. UNFPA was the convening agency of
the gender joint programme and the co-chair of the GCG until 2010).
Stakeholders interviewed recognized UNIFEM’s leadership role in coordinating efforts by United Nations
entities in implementing the UNiTE campaign and other joint activities, such as the 16 Days of Activism
against Gender Violence (see Section 3.4).
In addition, according to the UN-Women Mozambique annual workplan 2012-2013,442 its leadership in the
implementation of the Gender Scorecard in 2008 and in carrying out the inventory of EVAW-related
interventions in 2009 contributed to an increase in demand (from United Nations entities) for UN-Women’s
technical assistance, capacity- building and support on advocacy. It also resulted in UNICEF, UNFPA,
UNDP and the World Health Organization (WHO) reallocating funds to jointly support providing
equipment for sections in 15 police stations that provide services to survivors of violence in five provinces,
and the one-stop model room for VAW survivors in Maputo Central Hospital.
UN-Women and UNIFEM also served as co-chair of the GCG, which is considered a strategic coordination
mechanism. The GCG reviews all official government documents related to gender equality (e.g. the
National Plan for the Advancement of Women, the multisectoral mechanism for the integrated care of
women victims of violence) and promotes and coordinates national activities, such as the International Day
of the Girl Child (to stop child marriage). Interviewed stakeholders appreciated having an entity with the
specific mandate to promote gender equality and the advancement of women, and UN-Women’s capacity
to work together with the government and CSOs. One stakeholder commented that UN-Women’s role as
co-chair symbolizes the importance women’s issues have within the United Nations system.
439
UNIFEM regional office for Southern Africa. Annual Report 2008 – Development Results Framework. 2009.
440
The National Council on the Advancement of Women is an advisory body (part of the national gender machinery)
tasked with coordinating the implementation of the gender policy.
441
Op. cit. 49.
442
Op. cit. 47.
August 2013
21
Stakeholders noted UN-Women’s important contribution in establishing and functioning of the GJT. They
recognized the importance of this mechanism, established in 2011, and identified results that have already
been achieved, such as the development of a United Nations joint position to advocate for the reform of the
criminal code, and budget allocation for an initiative on abused women and children. However,
stakeholders also expressed some concerns about the regular functioning and effectiveness of the team. The
regular functioning of the GJT is a common problem attributable to the considerable number of groups and
subgroups existing within and outside the United Nations system, thus making it difficult for all entities to
attend all fora. With regard to the GJT’s effectiveness, stakeholders mentioned that the team has been
working on punctual projects and that its work is not directly linked to any outputs in the UNDAF which
may limit its effectiveness. However, the GJT only started its operations in 2012 and it is therefore too
early to assess its effectiveness.
When asked about factors limiting UN-Women and UNIFEM’s coordination role in Mozambique,
interviewed stakeholders noted the following:

Some UN-Women and UNIFEM supported projects (such as the Nhamai and ArtSocial-related
initiatives) have not taken advantage of opportunities for collaboration with other United Nations
entities in Mozambique;

The limited financial resources of the Mozambique country office may affect its ability to
coordinate common programmes with other United Nations entities; and

Having only three programme staff members in the country office may not be sufficient, in terms
of numbers to, fulfill all of UN-Women’s roles whilst contributing meaningfully to inter-agency
coordination efforts.
UNIFEM supported the sustainability of NGO results through:

Supporting partnerships and facilitating linkages between NGOs and potential donors/partners (e.g.
HOPEM and Nhamai were invited to be part of the GCG);

Supporting the sharing of experiences among NGOs; and

Facilitating a partnership and working relationship between Nhamai and the Ministry of Women
and Social Action, and provided Nhamai with external consulting services to develop a
sustainability strategy for the shelter.
These strategies led to some positive results and NGO representatives interviewed felt that UNIFEM’s
support helped strengthen their organizations and, in some cases, allowed them to attract new funds or
establish new partnerships to run their activities (e.g. Nhamai and HOPEM).
Factors enabling sustainability
Factors enabling sustainability that were identified by stakeholders include: i) increased public awareness
of the problem of violence against women and girls; ii) involvement of men as actors of change; iii)
government commitments on women’s human rights, gender equality and ending violence against women
and girls at national, regional and international levels; iv) the adoption of the Law on Domestic Violence
against Women and awareness of it in society, in particular among women; and v) mechanisms such as
gabinetes de atendimento to support implementation of the law.
Factors hindering sustainability
Limited government resources to implement national plans and strategies for ending violence against
women and girls: There are limited resources available for some ministries, such as the Ministry of
August 2013
22
Women’s Affairs, to play a key role in the fight to end violence against women and girls. The government
relies on external funding to implement its programmes which has contributed to a culture of reliance and
reduced incentives for the government to look for sustainable strategies to implement its programmes.
Supporting the implementation of plans and strategies to end violence against women and girls has not
been the responsibility of UN-Women nor UNIFEM alone, as other actors participated in the development
of national plans and strategies. However, feasibility assessments do not appear to have been conducted (to
ensure that resources were available) nor were accountability mechanisms established to foster effective
implementation of those plans and strategies.
Limited economic empowerment of women: According to those interviewed in Mozambique, the
economic dependence of women on
their partners/husbands (or other
Lessons Learned
family members) and the risk of not
being able to meet their children’s
The absence of or limited degree of women’s economic
basic needs on their own, makes
empowerment supports impunity and perpetuation of domestic
many women reluctant to report acts
VAW.
of domestic violence to the police
Linking strategies to end VAW with strategies to promote women’s
and/or to withdraw denunciations to
economic empowerment is likely to decrease women’s acceptance
avoid a period in prison for their
of violence and increase reporting of domestic violence cases to
partner/husband. In addition,
police.
women’s fear of family rejection or
family pressure may also be an important reason, especially in rural areas, for not reporting acts of
domestic violence.
Widespread corruption: Stakeholders interviewed noted that corruption may affect systematic recording
of the domestic violence cases reported by women survivors to the Gabinetes de Atendimento. Stakeholders
interviewed reported the police, for example, may accept a monetary bribe from the aggressor or his family
in order not to file a case.
Direct implementation by UN-Women and UNIFEM: Stakeholders noted how UNIFEM’s direct
involvement in implementation (e.g. campaigns, workshops etc.) partially undermined the sustainability of
these initiatives since it did not foster ownership by partners.
4.3
This section presents evaluation findings on what have been and are UN-Women’s organizational
strengths, weaknesses and lessons learned from its predecessor entities, in terms of planning, implementing,
monitoring and evaluating EVAW-related work
Most, if not all, of the following observations continue to (positively or negatively) influence UN-Women’s
current work on VAW.
Strengths
Lessons Learned
Prioritization of objectives and of strategies to achieve them is also
the following strengths of the
an important exercise to conduct, and even more important when
resources available are scarce.
UNIFEM Mozambique office team
in planning and implementing VAWrelated interventions during the period under review.
Clear mandate on gender equality and women’s empowerment which helped it advance related causes
in Mozambique.
August 2013
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Ability to achieve results with limited resources: Despite the small number of staff in the country office
and its limited financial resources, UNIFEM’s contribution to the fight against violence against women and
girls in Mozambique has been considered important. Several factors have supported UNIFEM’s
performance including: staff commitment; its capacity to work with and develop strategic relationships
with both government and CSOs; its strong capacity in communication; and its good reputation.
Coordination with other United Nations entities: United Nations entity representatives noted how
UNIFEM coordinated with other entities and actors on initiatives such as the 16 Days of Activism against
Gender Violence and on support to the gabinetes de atendimento.
Challenges and/or limitations
Available data indicate the following challenges and/or limitations to UNIFEM’s ability to plan,
implement, monitor and evaluate its VAW-related work in Mozambique.
Limited human capacity: Identified by all stakeholders as the main challenge in the period 2008-2011 and
in the subsequent years, the capacity of the office has been/is limited by the small number of programme
staff and skills available for fundraising, policy change and coordination, which make it difficult for the
office to contribute in an effective way to the existing coordination mechanisms with the government and
with other United Nations entities (e.g. the GCG and GJT).
Limited financial capacity: The limited budget has limited the office’s capacity to support its partners in
effective ways. The office has also been dependent on the Southern Africa subregional office for
disbursement of funds over $30,000. According to the UN-Women country office this has caused
significant delays (over one year) in disbursements to UNIFEM’s partners.
Absence of sustainability strategies: While UNIFEM supported interventions it considered had the
potential to effectively contribute to ending violence against women and girls in the long-term, it did not
develop specific sustainability strategies. This was particularly evident in the case of Nhamai, which is
facing important challenges in ensuring the sustainability of the shelter for women survivors of violence.
UN-Women is currently supporting Nhamai to develop a sustainability strategy, but this was not
anticipated sufficiently in advance.
Insufficient attention to reporting and evaluation: There has been limited formal reporting and no
evaluation of the initiatives supported by UNIFEM. As noted in Section 1.3., a major challenge of this case
study was the limited amount of documentation available to the evaluation team. In addition, there appears
to have been no assessment, internal or external, of the effectiveness of UNIFEM’s support to, for example,
the programme developed by ArtSocial, HOPEM and Nhamai.
Lack of coordination with United Nations entities on some initiatives: Some United Nations entity
representatives felt that UNIFEM’s support of shelters in Mozambique increased its visibility in the country
but did not encourage coordination of the United Nations’ efforts to end violence against women and girls,
raising questions about the relevance of such support.
Most, if not all, of the above observations on organizational strengths and weaknesses continue to influence
UN-Women’s current work on VAW. UN-Women can build on UNIFEM’s reputation and experience in
work on violence against women and girls and its links with government, CSOs, women’s movement
organizations and other United Nations entities. Nevertheless, unless addressed, some of UNIFEM’s
organizational weaknesses are likely to continue to affect the work of UN-Women. Ensuring the basic
conditions required for the office to be operational (e.g. proper IT equipment, electricity, etc.) also presents
a challenge. In addition, UN-Women’s capacity to support the work to end violence against women and
girls in Mozambique through advocacy and knowledge sharing activities, will depend on its capacity to
August 2013
24
learn about effective and less effective strategies. In order to do so, stronger monitoring and evaluation
(M&E), and reporting systems and capacities will be required.
4.4
This section presents evaluation findings in Mozambique on the extent to which UN-Women has
strategically positioned itself to add value in preventing and responding to VAW in global,443 regional and
national contexts. UN-Women’s strategic positioning with regards to VAW in Mozambique is strongly
influenced by the organizational strengths and weaknesses outlined in Section 4.3 above, and other
contextual factors outlined throughout the report.
Contextual factors
UN-Women’s position and reach in Mozambique is constrained by several contextual factors including: i)
the vast size of the country makes transportation costs high and travelling to rural districts a timeconsuming activity; the high level of illiteracy and language barriers makes it difficult to reach out to the
population other than through channels such as (community) radio; and iii) the limited number of CSOs
and grass-roots organizations outside the capital and a few other big cities. Such a context will continue to
pose logistical challenges to UN-Women’s work, in particular because of its limited office presence in
Maputo.
UN-Women’s strategic positioning will also be affected by the role other United Nations entities have
played in Mozambique until recently, and the fact that these entities have had more available resources.
Mozambique is a Delivering as One country and UN-Women will need to balance its role in ending
violence against women and girls within the framework of the United Nations entities’ coordinated
approach to design and delivery.
There are high expectations from all stakeholders interviewed about UN-Women’s future role in ending
violence against women and girls. Consulted stakeholders hoped that the transition to UN-Women would
be accompanied by enhanced human and financial resources for the entity to fulfill its mandate. UNWomen’s capacity to work with men’s organizations, and in partnership with both the government and
CSOs, and its clear mandate, reputation and expertise, is seen as a key asset towards ending violence
against women and girls. Representatives of UN-Women’s partners indicated a readiness to have it play a
key and more important role in the fight against violence against women and girls.
However, stakeholders identified important concerns which also emerged from the data analysis concerning
UN-Women’s ability to fulfill the inter-agency coordination and operational dimensions of its mandate.
Many of these concerns relate to the challenges/limitations stemming from the (limited) availability of
resources, as highlighted in Section 4.3.
In terms of the operational dimension of its mandate, one of the key concerns expressed by consulted
stakeholders is UN-Women’s use of partnerships (existing and potential) with CSOs, the government,
United Nations entities and the media. According to stakeholders, UN-Women could work more
systematically with its partners to make progress in preventing violence against women and girls and
expanding access to services. Tapping into the strength of its partners would also help it overcome the
challenge of its own limited resources.
There is also concern as to whether UN-Women intends to focus on advocacy and coordination or
implementation at the country level. Greater clarity on this would help it better define and prioritize
443
Due to the nature of the country case study, the following reflection focuses on UN-Women’s positioning in view
of the respective regional and national contexts.
August 2013
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strategies and approaches at country level (e.g. capacity strengthening, social mobilization, coalition
building, development of legislation/national plans, etc.).
In terms of the inter-agency coordination dimension of its mandate and contributing meaningfully to
coordination mechanisms existing within the United Nations system, the Mozambique country office is
challenged by its limited (and relatively new) institutional experience in coordination, limited resources,
and by the lack of clearly defined priorities on where to allocate available resources for them to bring the
most value (e.g. gender equality mainstreaming, violence against women and girls, GRB and economic
empowerment).
Recommendations
5.
The following suggestions and recommendations to the UN-Women offices in Mozambique and
headquarters are based on the data collected for the country case study.
Contributions to results
The UN-Women country office in Mozambique could:

Select the focus of and prioritize work on EVAW: The UNIFEM country office in Mozambique
has been supporting a variety of initiatives to end violence against women and girls despite an
absence of clear guidelines from UN-Women at headquarters on how to work on this area and a
strategy defined by the country office. In order to provide coherent support despite its limited
capacity, the country office may want to consider defining the focus of and prioritizing work on
EVAW in Mozambique.

Develop a holistic/multidimensional approach to ending violence against women and girls:
The limited economic empowerment of women is one of the key causes for the perpetuation of
VAW in Mozambique and an important barrier to achieving sustainable results under the Law on
Domestic Violence against Women. UN-Women could address this challenge by facilitating links
between the interventions it supports for ending violence against women and girls and other
existing or proposed interventions of other partners which focus on increasing women’s economic
empowerment. It could also adopt an approach which challenges cultural norms, beliefs and values
in Mozambique that perpetuate violence against women and girls and gender inequality, and
instead promotes changes in attitudes and behaviours, and renegotiation of power relations in the
family and society toward respectful and non-violent practices. In so doing, it would increase the
sustainability of results and ensures UN-Women uses its partnerships to address the issue in a
holistic way, rather than adding an additional area of work.

Support monitoring, implementation and accountability for ending violence against women
and girls: Despite laws, strategies and plans for gender equality and eliminating violence against
women and girls in Mozambique, implementation is lagging. UN-Women may want to continue
strengthening the government’s capacity to monitor and implement such laws, strategies and plans,
and support CSOs to build capacity to monitor and hold the government accountable for
implementation. This would also help increase the sustainability of results.

Support partners to develop a long-term vision of desired results and the corresponding
implementation plans and sustainability strategies at the planning stage: UNIFEM’s partners
have experienced some challenges in ensuring the implementation of initiatives supported by
UNIFEM (e.g. the government and ArtSocial) and in the sustainability of results achieved (e.g.
Nhamai). This is due in part to partners not having developed a long-term vision of the desired
results and the corresponding strategies for implementation and sustainability during the planning
stages. UN-Women and other collaborating United Nations entities could encourage partners to
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26
reflect on the desired short-, medium- and long-term results and support them develop
corresponding implementation and sustainability plans at the planning stage.

Integrate considerations specific to girls: Not all strategies concerning VAW address the issue of
violence against girls. With the support of, and in coordination with other United Nations entities
and CSOs, UN-Women Mozambique could pay more attention to integrating considerations and
adapting strategies (coordination, advocacy, social mobilization etc.) specifically related to girls
who are victims of violence.
Organizational strengths/weaknesses

Capitalize on results achieved and make use of lessons learned: While stakeholders report that
UNIFEM and other actors have contributed to important results in ending violence against women
and girls in Mozambique there have been few evaluations of these efforts, and there is insufficient
quantitative data and little documentation. UN-Women could identify and evaluate results achieved
and lessons learned on what has worked and what has not in a more systematic way. To do so will
require adequate M&E systems and capacity and more attention to baseline data collection.

Improve filing systems: This would ensure that key information on supported interventions is
readily available and that there is less reliance on the institutional memory of country office staff. It
would also support more regular reporting on results achieved, challenges faced and lessons
learned from the supported partners.

Provide professional development opportunities for its staff: Country staff require additional
skills in order to participate more effectively in coordination mechanisms such as the GJT, GCG
and the GCG subgroup on violence; policy dialogue with government, United Nations entities and
other donors on EVAW and other gender-related issues prioritized in the country; support M&E
activities; and support the strengthening of partners’ capacities.
UN-Women headquarters could:

Ensure that human resources in the Mozambique country office are adequate to carry out strategic
work on violence against women and girls (as outlined in the paragraph above on contributions to
results) and to monitor and evaluate. This may require additional staffing and/or support (also in
terms of documentation in Portuguese) from the regional centre in Nairobi (Kenya) and/or
headquarters.
UN-Women strategic positioning

Prioritize objectives and strategies on the basis of current resources: The financial and human
resource constraints of the country office in Mozambique have been highlighted throughout the
evaluation. Although there is an expectation that these will be eventually overcome, the country
office should, in the meantime, adjust its work to its current resources. The country office could
conduct a prioritization exercise to identify priority areas to work on and strategies to apply.

Enhance the effectiveness and efficiency of its work by identifying and/or strengthening
strategic partnerships: Once key priorities are identified UN-Women and its partners could
identify areas for, and degrees of, collaboration in order to enhance the effectiveness and efficiency
August 2013
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of the efforts to end violence against women and girls and identify, as required, additional strategic
partners.444
UN-Women headquarters could:

Clarify expectations regarding the implementation of each of the three dimensions of the UNWomen mandate and provide clearer guidance on its corporate approach and priorities with
regards to violence against women and girls. In seeking to fulfill UN-Women’s broad mandate,
country office staff are under considerable pressure to implement the different aspects of the UNWomen mandate (normative, operational and coordination) and to develop an effective strategy to
end violence against women and girls. The country office should be given further
guidelines/orientation from headquarters on how to implement the three dimensions of the UNWomen’s mandate given the country context and capacities, and how to implement UN-Women’s
corporate approach and priorities to violence against women and girls, a suggestion likely to apply
to other country offices as well.
444
UN-Women would need to define and identify strategic partnerships which may include: partnerships with
influential organizations; partnerships with large organizations; partnerships with organizations working on specific
themes related to ending violence against women and girls or targeting specific groups (such as religious leaders).
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6.
The table below summarizes key observations deriving from the Mozambique county case study that are relevant in view of informing the overall
evaluation, in particular the evaluation’s intent to work towards developing one (or more) theory/theories of change for UN-Women’s work on
VAW. The observations are structured according to the three dimensions of UN-Women’s mandate and include elements that emerged during the
session on the theory of change held with UN-Women country office staff on the last day of the field mission.445
Dimension
Types of interventions in Mozambique
 Providing financial and technical
Operational




445
support to help strengthen the capacity
of national partners, in particular the
national gender machinery, women’s
and men’s organizations
Providing access to relevant exchange
opportunities to the national gender
machinery and women’s and men’s
organizations, which constitutes a key
element of capacity-strengthening work
Facilitating dialogue mechanisms
among and between government and
non-government actors at national
level
Supporting governmental partners to
develop strategies and action plans on
violence against women and girls and
gender equality
Mobilizing society through the UNiTE
campaign via mass media, champions
for change and advocacy material
UNIFEM/UN-Women’s contributions to
results outlined in reconstructed
corporate results logic
UNIFEM VAW-related work in Mozambique
addressed (to varying degrees) all four
operational short-/mid-term results and the
three mid-/longer-term results outlined in the
preliminary results model included in the
evaluation Inception Report.
The involvement of men in ending violence
against women and girls is not adequately
reflected in the reconstructed corporate
results logic.
In Mozambique, UNIFEM’s work tackled all
forms of violence, but a special focus was
given to domestic violence given the recent
adoption of the law on this form of violence.
In the country, UNIFEM worked both on the
prevention and response to VAW. The
preferred approach used to prevent VAW
was through raising awareness and the
response to VAW was technical and financial
assistance aiming to improve and expand
critical services to women survivors.
In Mozambique, UNIFEM worked with both
duty bearers and rights holders to support
their capacity strengthening.
Implicit assumptions underlying VAW work in
Mozambique/Risks
 Effecting changes in attitudes/behaviours
requires:
 Sustained engagement of public
leaders/champions;
 Strategies and resources for reaching out to
men (and women);
 Capacities at all levels; and
 The involvement of “guardians of culture”
(men and women), including
religious/traditional leaders (which requires
work with partners well placed to do so).
 CSOs have the capacity to keep the
government accountable for the
implementation of existing
programmes/plans/policies/laws for ending
violence against women and girls.
 The government has/makes available the
required resources for the implementation of
its national/regional/international commitments
on ending violence against women and girls
and gender equality.
 There are strong/equipped grass-roots
organizations committed to gender equality
that can reach out to the population living in
the most remote areas of the country.
The results of the theory of change workshop are presented in Appendix VII.
August 2013
29
Types of interventions in Mozambique
Normative
UNIFEM/UN-Women’s contributions to
results outlined in reconstructed
corporate results logic
Implicit assumptions underlying VAW work in
Mozambique/Risks
 Coordinating United Nations entities on
 UNIFEM/UN-Women contributed to
 United Nations entities participate in
UNiTE
 Coordinating United Nations entities of
the GJT
enhancing the short-term coordination of
activities and investments to end violence
against women and girls by the United
Nations system.
 No visible contribution to strengthened
accountability in the United Nations
system.
coordination mechanisms.
 Ending violence against women and girls is
recognized by UNCT and corresponding
United Nations entities at headquarters as a
priority. This also assumes:
 Commitment by the UNCT;
 Sufficient resources from UN-Women
headquarters to support country-level
activities;
 United Nations entities contribute and are
each accountable for results relating to
 Roles and responsibilities of United Nations
entities are clear;
 UN-Women has the capacity to contribute
in a meaningful way to the work of the
United Nations Development Result Group;
and
 Staff, managers and directors of United
Nations entities are accountable for gender
equality results (performance assessments
are linked to gender equality performance)
 Promoting knowledge of and use of
UN-Women and UNIFEM contributed to
having CEDAW as a guide of the work
carried out by UN-Women and national
partners.
Government and civil society accept
internationally agreed development goals and
are willing to work together with the United
Nations to implement.
Inter-Agency Coordination
Dimension
CEDAW among national actors
 Facilitating national actors’ participation
in global forums, (CSW) to inform or
‘back up’ national processes.
August 2013
30
Appendix I
Estrella Alcade, Pathfinder
Ondina da Barca Vieira, UN-Women
Valéria de Campos Mello, UN-Women
Nzira de Deus, Forum Mulher
Leontina dos Muchangos, CIDA-Canada
Julio Langa, Rede HOPEM (Man-to-Man Network)
Ana Loforte, WLSA
Dalila Macucua, Horizonte Azul
Gilberto Macuacua, Rede HOPEM (Man-to-Man Network)
Mariana Muzzi, UNICEF – Mozambique
Agueda Nhantumbo, UNFPA – Mozambique
Shaista Serena Costa De Araujo, UN-Women
August 2013
31
Appendix II
Evaluation Matrix
Purpose
The country site visits provide context specific insights to both the evaluation’s backwards and forwardlooking components. The retrospective insights involve gathering information on the ‘distance travelled’
in terms of EVAW to date; the contributions of UN-Women’s predecessor entities to this progress in the
Approach
CSO focus
interviews or focus
National
Government
interviews
UN-Women
interviews
UN CMT interviews
Observation
LINES OF INQUIRY
METHODS
Country records
Case Studies
1.1 During the period 2008-2011, how did contextual and environmental
factors affect or influence the VAW work of UN-Women’s predecessor
entities?
√
√
√
√
√
√
√
√
√
over time?
√
√
√
√
achieving national results on preventing VAW and expanding access to
services at country level?
√
1.5 What have been UN-Women’s predecessor entities’ contributions to
results with regards to coordinating EVAW related efforts inside (and outside)
the United Nations system?
√
√
√
√
√
√
√
√
√
√
√
August 2013
33
CSO focus
interviews or focus
National
Government
interviews
√
UN-Women
interviews
√
UN CMT interviews
Observation
LINES OF INQUIRY
METHODS
Country records
Case Studies
√
√
√
√
operationalizing its mandate for EVAW aligned with its normative,
operational and coordination dimensions?
√
√
√
√
√
August 2013
34
Appendix III
Documents Reviewed

UN-Women Mozambique (2013). Programme Planning Exercise and Mid-Term Review of the
approved AWP 2011-2013.

UN-Women Mozambique (n.d.). “Enhancing Capacities to Accelerate the Implementation of
Gender Equality and Women’s Empowerment Commitments in Mozambique.” Strategic Note
2012-2013.

UNIFEM Regional Office for Southern Africa (2009). 2008 Annual Report – Development
Results Framework.

UN-Women (2011). Violence against Women Prevalence Data: Surveys by Country: Available
from
http://www.endvawnow.org/uploads/browser/files/vaw_prevalence_matrix_15april_2011.pdf

UNIFEM Regional Office for Southern Africa and Indian Ocean States (2008). Subregional
Strategy: 2008-2009.

UNIFEM Regional Office for Southern Africa and Indian Ocean States (2010). Subregional
Strategy: 2010-2011 Amendment. Revised version July 13 2010.

Gender Joint Team (2012). 2012 Annual Workplan.
Documents related to specific UN-Women, UNIFEM or UN Trust Fund Projects

Forum Mulher (n.d.). Transforming Beliefs, Traditional practices and Service Delivery to
Redress Violence Against Women and Reduce Women and Girl’s Vulnerability to HIV . (Annual
and six-month progress reports).

Langa, J (2011). Report on the Consultancy to the UNiTE Campaign: June-December 2011.

Pathfinder International. Enhancing Reproductive Rights to Reduce Violence against Women in
Gaza Province. (Project proposal and progress reports).

United Nations Gender Joint Programme (2012). Concept note, progress reports and final
report.
Other documents

SADC (2011). SADC Gender Protocol 2011 Barometer. Available from
http://www.sadc.int/files/3113/5435/5263/SADCGenderBarometer_2011.pdf

UNDP (2011). Human Development Report 2011. Sustainability and Equity: A better Future for
All – Explanatory note on 2011 HDR composite indices: Mozambique Available from
http://hdrstats.undp.org/images/explanations/moz.pdf.

Romão, Francelina and others (2009). Violence Against Women in Mozambique.

Ernest & Young (2010). Assessment of the model Women and Children’s Gabinetes de
Atendimento. Final Report.

República de Moçambique (2012). Mecanismo Multisectorial de Atendimento Integrado a
Mulher Vítima de Violencia.

República de Moçambique (n.d.). “Plano Nacional de Acção para Prevenção e Combate à
Violência contra a Mulher (2008-2012)”
August 2013
35

Police Force of the Republic of Mozambique, Ministry of the Interior (2012). Applicação da Lei
de violência domestica em Moçambique: constrangimentos instituicionais e culturais,
experiências dos GAMC. Presentation at the National Conference on Gender-Based Violence.
Maputo, November 2012.

Human Rights Council (2011). “Compilation prepared by the Office of the High Commissioner
for Human Rights in accordance with paragraph 15 (b) of the annex to Human Rights Council
resolution 5/1. Mozambique.” Working Group on the Universal Periodic Review. Tenth Session.
Geneva, 24 January–4 February.

Economic Commission for Africa (2009). Africa’s Women Report 2009. Measuring Gender
Inequality in Africa: Experiences and Lessons from the African Gender and Development Index.
Available from: http://www.uneca.org/publications/african-womens-report

Namburete, E. (2009). SADC Gender Protocol Barometer Baseline Study. Mozambique.

UNICEF (2006). Situation Analysis of Mozambique.

CEDAW (2007). Concluding comments of the Committee on the Elimination of Discrimination
against Women: Mozambique. Thirty-Eighth Session, 14 May - 1 June 2007.

United Nations (2010). Inventory of the United Nations systems Activities to Prevent and
Eliminate Violence against Women.

Maira Martini (Transparency International) (2012). Overview of Corruption and Anti-Corruption
in Mozambique.

UN-Women, Executive Board (2012). Regional Architecture.

United Nations (2010). Inventory of the United Nations Systems Activities to Prevent and
Eliminate Violence against Women.

Institute of Development Policy and Management (n.d.). Integrating Gender Responsive
Budgeting into the Aid Effectiveness Agenda. Mozambique Country Report.

Social Development Direct (2009). UNIFEM Work on Gender-Responsive Budgeting. GenderResponsive Budgeting Programme: Mozambique. Evaluation Report.

United Nations (n.d.). Joint Programme on Women’s Empowerment and Gender Equality. Final
Programme Narrative Report. Available at: http://mdtf.undp.org/document/download/9769

Termos de referência do Grupo de Coordenação de Género, Agosto 2010.

Joint, Liga de ONGs em Mocambique (2010). Noticias (24 June). Available from
http://www.joint.org.mz/joint3/noticias/articlefiles/168JOINT_NOTICIAS%5B1%5D%5B1%5D.pdf

UNICEF (2011). Brief on Accelerating Prevention and Response to Violence Against Children in
Mozambique. Available from http://www.unicef.org.mz/online-files/Violence-and-Abuse-14-102011.pdf
Websites

World Bank. Available from http://povertydata.worldbank.org/poverty/home/.

Human Development Index and its components. Available from
http://hdr.undp.org/en/media/HDR_2011_EN_Table1.pdf.

Office of the High Commissioner for Human Rights. Available from
http://www.ohchr.org/EN/Countries/AfricaRegion/Pages/SouthernAfricaSummary10.aspx.

Southern African Development Community. Available from http://www.sadc.int/issues/gender/.
August 2013
36

Social Institutions and Gender Index. Available from http://genderindex.org/content/team.

Social Institution and Gender Index 2012 Profile on Mozambique. Available from
http://genderindex.org/country/mozambique.

Delivering as One in Mozambique. Available from http://mz.one.un.org/eng/How-we-work/UNAgencies.
August 2013
37
Appendix IV
Organization
Role/Title
UN-Women
UN-Women Country Office
Country Representative
GRB Programme Coordinator
Programme Assistant?
Partners/Stakeholders in Mozambique
United Nations Country Team (UNTC)/Other UN entities
UNICEF
Child Protection Specialist
RCO/UNDP
National Coordinator Officer
UNDP
Special Assistant for the RC
UNFPA
National Programme Officer –
Gender, Culture and Human
Rights
Food and Agriculture Organization of the
United Nations (FAO)
Chief Technical Advisor (gender
and natural resources)
Individual Interview (by phone)
Deputy National Director of
Women
Minister
Ministry of Interior (Police)
Director of the Gender
Department
Men for Change Network
Coordinator
ArtSocial/Man-to-Man Initiative
Director
Nhamai (Shelter)
President
Fórum Nacional de Rádios Comunitárias
(Forum of Community Radio Broadcasters FORCOM)
Executive Director
WLSA
Anthropologist – Training
Coordinator
(previously, Gender Technical
Advisor at Ministry of Women
and Social Action)
WLSA
National Coordinator
Pathfinder
GBV Programme Officer
AMMD
Committee member
Group Interview
Forum Mulher
Programme Director
Horizonte Azul
Member
Group Interview
Government
NGOs/Civil Society
Others
August 2013
39
Organization
Role/Title
Independent
Champion for Change
Judge
Chief of the Judges Association
CIDA-Canada
Gender Equality Advisor
Royal Norwegian Embassy
Gender Focal Point
DFID
Gender Specialist
KULA
Director
Royal Danish Embassy
Counsellor – Health and
HIV/AIDS
August 2013
40
Interview Guide
CSO Representatives
study. Thank you for agreeing to this interview. This document is intended to be a guide for our
discussion, which I expect will take roughly one hour. All interviews are confidential, in that information
you provide will only be reported in aggregate, summarizing all key informant interviews without
attribution to the sources.
Guiding Questions
1. Your role
EVAW?
2. Relevance
documents
networks etc.
interventions?
entities and why?
August 2013
41
Guiding Questions
why?
women and girls;
groups)
programming?
methods.
August 2013
42
Guiding Questions
country]?
actors
on in future?
4.2 In that same time frame, are there organizational mandate: operational, normative, inter-agency
coordination
going forward?
Other?
August 2013
43
Appendix VI
UNIFEM and UN-Women projects
Homem que é Homem (2011), UN-Women’s contribution of $95,000: In the framework of the United
Nations Secretary-General’s UNiTE campaign, ArtSocial implemented, with financial and technical
support from UN-Women, a television programme to raise awareness among men, and more broadly
among society, on the issue of VAW. The programme originally consisted in the production of eight
episodes (over three months) on violence perpetrated by men against women. The programme was
broadcasted by the public national television.
The general objective of the programme was to contribute to ending VAW as perpetrated by men and
boys. The specific objective was to have, at the end of the programme, 100 men aged between 15 and 49
years of age, covered by the programme at the national level condemning VAW. The expected results
were: i) men and boys more aware of the issue from a human rights-based perspective and of their role in
ending VAW; ii) fairer and more respectful attitudes in their relationships with women would be
encouraged; iii) a critical and transformative reflection on masculinity and its implications for women’s
lives, particularly on VAW, is promoted; iv) a more conducive environment for men to join in the efforts
to prevent and eliminate VAW is created; v) efforts for transforming societal norms of masculinity are
encouraged; and vi) dissemination of the Law on Domestic Violence against Women is promoted.
The main results achieved were: i) an increased awareness in society on the theme of violence against
women and girls; ii) changes in the attitudes and behaviours of some men who attended the programme;
iii) and public condemnation of acts of VAW by some of the participants of the programme.
Enhancing Reproductive Rights to Reduce Violence against Women in Gaza Province (2010-2013),
grant of $1,000,000
Pathfinder International, Mozambique, was given a grant to implement a project which aims to reduce
gender inequality, VAW and its effects, through a concerted multisectoral effort in Gaza Province. Five
main strategies to establish a sustainable, coordinated response to VAW are being employed: primary
prevention of VAW through school-based programmes, community-based approaches and male
involvement; establishment of an integrated package focused on secondary prevention and mitigation of
VAW; building multisectoral capacity for effective and sustained VAW interventions; collaboration with
frontline advocates to support legal and policy reform; and applying a collective linking and learning
approach for sustainability. These strategies aim to contribute to the UNiTE key national outcomes
related to enforcement of national laws, implementation of multisectoral action plans, and social
mobilization and prevention strategies. The project was primarily managed by the UNIFEM subregional
office in South Africa.
The expected results are to: 1) improve knowledge of and attitudes toward VAW among primary
beneficiaries (community members) and secondary beneficiaries (community leaders, community health
workers and peer educators) in targeted communities; 2) increase the number of community health
councils and community courts adopting practices to discourage gender inequality and VAW in their
localities; 3) increase the number of women and girls victims of violence who used a comprehensive
package of health, social and legal services; 4) to increase the number of government sectors and local
organizations implementing existing gender and VAW policies and laws; and 5) to promote the
enforcement of Law on Domestic Violence against Women and other laws in target communities as a
result of advocacy efforts of project partners, local organizations and gender focal points.
August 2013
44
At the end of the second year of the project implementation, the project has managed to achieve the main
outcomes outlined in the project proposal. With the training of relevant actors and the support of project
partners such as community-based associations, the League of Human Rights and government partners,
the project has managed to improve knowledge of and attitudes toward VAW among primary
beneficiaries (community members) and secondary beneficiaries (community leaders, community health
workers and peer educators). To increase male involvement, the project has partnered with the HOPEM
Network, which works with men to address gender issues in a variety of spheres (e.g. women’s sexual
rights, children’s education). In addition, through training, the project has managed to increase the
number of community health councils and community courts adopting practices to discourage gender
inequality and VAW in their communities. Moreover, the League of Human Rights and local partners
(CBOs, NGOs,and women rights networks such as Forum Mulher) are following-up with community
judges/personnel to reinforce the application of the training to court decisions related to women’s rights
and VAW, as well as conducting trainings, refresher trainings and on-site technical assistance to these
groups. The project has strengthened coordination among the police, legal services, mediation, social and
health services to ensure that referrals are effective and successfully managed to increase the number of
government sectors and local organizations implementing existing gender and VAW policies and laws.
Finally, the Law against Domestic Violence against Women is being widely disseminated and more
widely enforced in target communities through training and advocacy efforts from project partners.
Transforming Beliefs, Traditional Practices and Service Delivery to Redress Violence against
Women and Reduce Women and Girl’s Vulnerability to HIV Infection (2008-2011), grant of $100
000
Forum Mulher is a network of over 80 national and international organisations working to promote
women’s rights in Mozambique. The project for which they received a grant consisted of raising
awareness about the link between HIV and AIDS and violence against women and girls, and addressing
norms of masculinity and male behaviour that contribute to this twin pandemic. This project was
conducted in collaboration with the Ministry of Health and the Ministry of Women and Social Action and
CSOs. Its long-term objective was to reduce the incidence of GBV, and the prevalence of HIV and AIDS
among women and girls because of their vulnerability aggravated by harmful traditional beliefs and
practices and interpretation of masculinity. Its immediate objective is to implement a comprehensive
approach to address the cause and consequences of the dual pandemic of VAW, and HIV and AIDS.
The expected results were to: 1) increase women’s self-esteem and confidence through life-skills
and other community-based programmes; 2) strengthen capacities of CSOs, NGOs, government and
other community-based women's rights, sexuality and GBV related organisations; 3) expand and
increase public awareness and debate about the relationship between gender inequality, HIV and
AIDS and GBV through community radio programmes; 4) strengthen NGOs, public institutions,
community leaders and teachers’ understanding of the legal framework (Domestic Violence Act)
that supports the right of women and its dissemination; and 5) ensure access to health services and
counseling for women and girls victims of violence.
The activities implemented under this project has made significant contribution in increasing awareness
on GBV, and HIV and Aids, and increasing access to quality and integrated services to victims of
domestic violence, and HIV and Aids. Additionally, the project contributed to promoting male
involvement in addressing VAW and HIV prevention. The project also created an opportunity for the
different institutions, involved in the implementation of the Protocol related to VAW, to have a better
dialogue and establish mechanisms of coordination in response to domestic violence, and HIV and Aids
in the Chibuto and Xai-Xai districts. Finally, Forum Mulher inspired other partner organizations to
integrate GBV, notably Pathfinder International.
August 2013
45
Appendix VII
446
August 2013
47
Appendix VIII Notes from the Theory of
Change Session
The key results and assumptions identified by UN-Women country office staff in Mozambique during the
theory of change session are presented here. As already mentioned in the methodology section of this
report, there was not enough time to develop a full-fledge theory of change with the country office, nor was
this the objective. The results and assumptions presented below are therefore not exhaustive or definite.
UN-Women’s partners in Mozambique:
 NGOs (FORCOM, HOPEM, Nhamai, LeMuSiCa, NAFEZA, ArtSocial, Horizonte Azul,
AMMD, AVVD, Gender Links).
 Government: Ministry of Women and Social Action, Ministry of Home Affairs, Ministry
of Health, Ministry of Development of Planning, provincial and district-level authorities.
 United Nations entities: UNFPA, UNICEF, FAO, IOM, UNIDO, UNESCO, GJT,
Development Results Groups.
 Others: media, universities, opinion leaders, theatre of the oppressed.
Short- medium-term expected results on VAW:

Increase reporting on VAW.

Better awareness of the law.

Less acceptance of VAW (medium-term result).

Availability of data of VAW (medium-term result).

Reduction of VAW cases in Mozambique (medium-term result).

Reduction of prevalence of VAW (medium-term result).

Increase number of men-to-men approaches (medium-term result).

Improved accountability through increased and improved services, functional mechanisms for
implementation of legal frameworks particularly at local level.

Sound legal framework that complements / reinforce each other, e.g. penal code versus the law on
domestic violence.

Better mechanism for resources for victims, e.g. cash transfers.

Reaffirmation of government’s commitment on VAW.

Increased engagement with schools, e.g. youth theatres.

Violence against women and girls recognized as area of results in UNCT.
Long-term expected results on VAW:

Mentality change, e.g. through men for change / change in behaviour of men.

Full implementation of the action plan of the GJT that includes VAW.

UNDAF activities have dimension on VAW.
August 2013

Increased mandate-based complementary work by agencies on VAW.

Empowered women in rural communities.

Increased accountability of governmental institutions on VAW.
Assumptions related to the result “changed mentalities”

Sustained engagement of public leaders/champions - strategies should be widened and continued to
be developed – need for sustained efforts and resources for reaching out to men (and women).

Capacities at all levels.

Involvement of guardians of culture (men and women) – religious/traditional leaders: we need to
engage more – we are not, as UN-Women staff, not the best placed to do it.
Assumptions related to the result on inter-agency coordination

Gender joint team well functioning i.e. participation.
– Violence against women and girls is recognized in UNCT and commitment by the UNCT.

Enough resources from UN-Women headquarters to support country-level activities.

United Nations entities accountability to violence against women and girls results (what is the
contribution of each agency to violence against women and girls).

Clarity of roles and responsibilities among United Nations entities.

Capacity of UN-Women to participate in a substantive way to the United Nations Development
Results Group.

Accountability of United Nations entities’ staff and managers to gender equality (e.g. performance
assessments linked to gender equality performance).
August 2013

Thematic Evaluation of the Contribution of UN

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